EightPrinciplesForEffectiveRuralGovernance AndHowCommunitiesPutThemIntoPractice

Foreword Thequestforeffectivegovernance,particularlyatthelocalandregionallevels,isoneof themanychallengesfacingruralAmerica.Happily,effectivegovernancealsoisoneof thebestopportunitiesforshapingavibrantfutureforruralcommunities.Whomakes thedecisionsandthewaythattheyaremadeliesattheheartofahealthydemocracy. Butintoomanypartsofthecountry,especiallyoutsideofmetropolitanareas, democratictraditionsandprinciplesoftenarethreatenedbyremote,exclusionaryand illinformeddecisionmaking.For15years,theRuralPolicyResearchInstitute(RUPRI) hasfocusedattentionontheimpactofpoliciesonruralAmericaandhasprovideda safespacefordialogueoncriticalissues.Effectivegovernancehasbeen,andwill continuetobe,atthecenterofRUPRIsvisionforruralAmerica. Inearly2004,RUPRIandCFED(formerlytheCorporationforEnterpriseDevelopment) enteredintoajointendeavortoidentifytheprinciplesthatunderliegoodgovernanceat thecommunitylevel.RUPRIengagedNancyStark,anexperiencedobserverofand advocateforsmallruraltownsandcommunities,toleadthisendeavor.Knownasthe RuralGovernanceInitiative,thisprojectuncoveredmanyexcitinginnovationsacross ruralAmerica,ofteninunexpectedplaces.Theinitiativealsoidentifiedasetofeight principlesofeffectivegovernance,whichweredescribedinaRUPRIworkingpaper EffectiveRuralGovernance:WhatIsIt?DoesItMatter?Anupdatedversionofthatpaper comprisesthefirstsectionofthisreport. ThedesiretotesttheseprinciplesonthegroundledtoaproposaltotheNorthwest AreaFoundationforaprojectlocatedintheFoundationseightstateregion.Thanksto theforesightofKarlStauberandElleryJuly,thefoundationcommittedresourcesto launchtheCommunityClusteringInitiative,athreesitedemonstrationinOregon, SouthDakotaandWashington.Theresultsofthedemonstrationarepresentedinthe secondpartofthisreport. WeareverygratefulnotonlytotheNorthwestAreaFoundation,butalsotothe communitypartnerswhodoveintotheprojectwithconsiderableenthusiasmand energy.Inparticular,specialthanksgotoclusterencouragersJoeBaisch,HeidiNogy, JessicaSchoenhardandAdamZimmerman,andtoregionalintermediarystaff,Bob Ault,KatherineBarilandBethDavis.Wealsoareindebtedtothecommunity

participantswhowillinglygaveuptheirtimetoexperimentwithtechnologiesand unfamiliarconceptsandtoapplythegovernanceprinciplesontheground. Ihopethatthisworkoncommunityclusteringwillsparkinterestandfurther developmentamongthepolicymakerandphilanthropiccommunities.RUPRIwill continuetoexplorethemanydimensionsofruralgovernance,includingtheroleof intermediariesandtheimplicationsofregionalgovernanceforurbanruralcooperation. WeintendtolookatruralgovernanceissuesastheyrelatetootherpartsoftheRUPRI portfolioinhealth,entrepreneurship,humanservicesandtelecommunications.Indeed, ourworkonentrepreneurshipdevelopmentsystemsitselfstimulatesregionalism, collaborationandinclusiveness,theverybedrockprinciplesofruralgovernance. Finally,IwouldliketothankNancyStarkforherdeterminationtotranslatewhatwasa somewhatamorphousconceptintoatangiblesetofprinciples,andthenapplythemin threeruralregions.Workingwithconsiderabletimeandbudgetconstraints,she achievedhergoalswithhumor,graceandinsight.Shehasproducedareportthatis bothenlighteninganduseful. BrianDabson Columbia,Missouri July2006

PartI EffectiveRuralGovernance:WhatIsIt?DoesItMatter? PartIofthereportdefineseffectivegovernance,explainswhygovernanceissuddenlyinthe spotlight,anddetailsandillustrateseightkeyprinciplesofeffectiveruralgovernance. InthemedicallyunderservedregionofnorthernIdaho,workingfamiliesnow receivequalityhealthcareataregionalcenterstaffedbyphysicians,dentistsand mentalhealthprofessionalsrecruitedtothearea. InCaliforniasrural,multiculturalNorthCoast,afourcountyregionnolonger supportedbyresourcebasedindustriesisnowsproutingfirstgeneration entrepreneurs. InanorthernMaineregionplaguedbypopulationloss,communityleadersnow understandtheregionsuniqueeconomicclustersandarebuildingbusiness developmentlinkagesacrosstheCanadianborder. InaMinnesotaregiondevastatedbytimberandminingindustrydeclines,rural residentsnowprofitfromtheregionsonestopworkertrainingresourceand newprivatesectorinvestments. Whyaretheseencouragingeventsoccurringinsucheconomicallychallengedrural places?Towhatcanweattributetheseimprovedsocialandeconomicoutcomes?What aretheunderlyinglessonsforruralleadersandpolicymakers? Fortwoyears,theRuralPolicyResearchInstitute(RUPRI)investigatedthesevery questions.TheRUPRIRuralGovernanceInitiative(RGI)wantedtounderstandhow ruralpeopleandinstitutionsmakedecisionsabouttheircollectivewellbeing,or,in otherwords,theprocessofgovernance.RUPRIsoughttostrengthenthedecisionmaking processinruralcommunities,especiallyinstrugglingregions. Earlierresearchandcommunitysuccessstoriessuggestedthatanswerstothese questionsdidntliewithapowerfulfundingprogram,anoveldevelopmentstrategyor anexceptionalindividual.Intheseplaces,asinmanyothers,thepushtowards prosperityderivedfromashiftingovernanceexplicitly,shiftstowardsmoreeffective governance. Governanceisntanoveltermforsomethingruralcommunitiesalreadydonorisita fancysynonymforcommunitydevelopment.Effectivegovernanceisanamalgamof 3

specificpracticesthatmakethedifferencebetweenstagnatingandflourishing communities.Becauseeffectivegovernanceissoinexorablylinkedtoruralprosperity, RUPRIwasdeterminedtoexplaingovernancetocommunityleaders,practitionersand policymakersinunderstandableandactionableterms. [Sidebar]RUPRIsFocusonRuralGovernance RuralgovernanceisakeyconcernoftheRuralPolicyResearchInstitute (www.rupri.org)basedattheUniversityofMissouriColumbia.RUPRIconducts policyrelevantresearchandfacilitatespublicdialoguetohelppolicymakers understandtheimpactofpublicpoliciesandprogramsonruralareas.Manypolicies thatarenotexplicitlyruralpoliciesneverthelesshavesubstantialimplicationsfor ruralplaces.RUPRIsruraleffortsfocusonpoverty,health,entrepreneurship, telecommunications,welfarereform,communityinformaticsandotherpolicyissues. Overatwoyearperiod,theRUPRIRuralGovernanceInitiative: researchedtherelationshipbetweenthewaythatdecisionsaremade(andwith whom)andtheresultsthatareachievedinthelongterm; validatedhowgovernanceaffectseconomicandsocialoutcomes; facilitatedgovernanceconversationsamongcommunityleaders,practitioners andpolicymakers; disseminatedguidanceoneffectivelocal/regionalgovernancepractices;and proposedpublicpoliciesthatencourageandsupporteffectivegovernance practices. SeveralorganizationscontributedtotheRGIsaccomplishments,includingtheRUPRI CenterforRuralEntrepreneurship(www.ruraleship.org)andCFED(www.cfed.org),a nationalnonprofitorganizationfocusedonexpandingeconomicopportunity. AlthoughtheRuralGovernanceInitiativeconcludedinJuly2006,RUPRIwillcontinue toexploreandfacilitatethemanydimensionsofeffectiveruralgovernance. ExactlyWhatisEffectiveGovernance? Perhapsourgreatestchallengeistocreateandteachanewcivicethosthat emphasizesandvaluessustainedparticipation,notsporadicandepisodic participation.Therealtestofthechangeincivicculturewillbesustainabilityin theengagementprocess. DonaldLacy,AssociateProfessor,OhioStateUniversity1 4

Governanceistheprocessofmakingandcarryingoutdecisions.Initsmostcommon use,governancereferstothemanagementpracticesofgovernments,includingcities, counties,specialdistricts,schoolsystems,regionalgovernments,Indianreservations andstates.EspeciallyinAngloSaxoncountries,goodgovernancedenotesefficiency, effectiveness,goodvalueforthemoneyanduseofalternativeadministrative mechanisms.2 Governmentisthemostrecognizedformofgovernance,butitisnotthewholestory. Effectivegovernanceincorporatesavarietyofdecisionmakingandimplementation practicesbyawiderangeofpeople,organizationsandinstitutionsbeyondgovernment: nonprofitgroups,faithbasedorganizations,communityfoundations,citizenalliances, communitycolleges,businessassociationsandothers.Moreover,effectivegovernance incorporatescommunitybuilding:processesthatdevelopleadership,enhancesocial capitalandpersonalnetworksandstrengthenacommunityscapacityfor improvement.3 InRUPRIsvision,governanceisamuchbroader,moreinclusiveprocess.Governance isapractice,notjustagovernmentsystem.Thedistinctionismorethansimple semantics.Whencitizensplaceallofthedecisionmakingpowerabouttheirwellbeing intothehandsofagovernmentsystem,theyareignoringtheirownresponsibilityand potentialcontributions,aswellasthoseofotherindividuals,groupsandorganizations. Decisionmakingthatdoesnotincludethesebroadercontributionsoftenwillbeflawed. Thepracticeofeffectivegovernanceincorporatesthesebroadercontributionsonan ongoingbasistoensurethatdecisionsthataffectthewellbeingofthepeoplearemade bythepeople,inthetruestsense.) Thisdeeper,morefarreachingprocesshasthreemajorcomponents: Collaborationacrosssectors(publicandprivate)andpoliticalboundaries(citiesand counties). Thehistoricregionaljointpoweragreementamongonecounty,twocities,aNative AmericantribeandaschooldistrictinnorthernIdaholaunchedtheBoundary RegionalHealthCenterisanexcellentexample.Arealeaderscreatedasecond regionalpoweragreementfocusedonenvironmentalandnaturalresourceissues. TwothirdsofBoundaryCountyisnationalforestland;naturalresourceissuesare especiallydivisive. Sustainedcitizenengagement(welcomingnewvoicesincludingyouth,grassroots visioning). 5

 ThedialogueamongCaliforniaNorthCoaststribal,environmental,business, entrepreneurial,educationalandcommunityhealthleaders(politicallyleft,right andcenter)envisionedadifferentfutureandisnowalteringtheregions developmentagenda.RedwoodCoastRuralActions(RCRA)fourcountiescoveran arealargerthanMassachusetts.Yet,RCRAisforgingfreshpartnershipsamong business,education,health,environmentalandculturalinterestsandisgenerating newsupportsforentrepreneurs. Leveragingregionalresources(capitalizingoncompetitiveadvantages, strengtheningelectedleaders,engagingintermediariesandinvestinglocal capital).

AnanalysisofregionalcompetitiveadvantagesbroadenednorthernMaines developmentagendaintoNewBrunswick,Canada.AsAroostookCountyexamined itsregionaleconomicclustersforestproducts,agriculture,tourism,information technologyandprecisionmanufacturingnewU.S.Canadianbusinessprospects emerged. RUPRIbelievesthateffectivegovernancebuildsthefoundationtoengagedisparate groups,sparkgoodideasandgenerateconcreteresults.Effectivegovernancelaysthe groundworkthatcomplementsthegoodworkofentrepreneurialdevelopment, communityinfrastructureimprovements,artisticendeavorsorotherinitiatives. Effectivegovernanceprovidesthegluetocoalesceandsustainachievementsoverthe longterm. RuralAmericashowcasesawiderangeofgeographic,economic,political,culturaland demographicconditions.Certainly,someruralcommunitiesareprivilegedbystrong amenities,proximitytoametropolitanarea,etc.,whileothersarenot.Yet,allrural regionsaregovernedandeachcanstrengthenitsgovernancesystem. WhyAlltheFussAboutGovernance? Whatinformationaregovernancedecisionsbasedon?Whatinformationshould theybebasedon?Whodecides?Howdounprecedentedconversationsthat resultfromregionalcollaborationchangethecontentandflowofinformation? Whatstheimpactoncommunitydecisionmaking?Thesearetheimportant governancequestions. ShannaRatner,Principal,YellowWoodAssociates,St.Albans,Vermont 6

 Governancehasbeenattheforefrontforseveralyears.TheFederalReserveBankof KansasCitys2004conferencefeatureditinamajorcompilationeditedbythreewell respectedruraleconomists.4Effectivegovernancewasthefocusofseveralrecentstate legislativesessionsandinternationalgatheringsoftheOrganizationforEconomic CooperationandDevelopment(OECD).Whyisgovernancereceivingthisattention? RUPRIseesthreeexplanationsfortherecentspotlightongovernance. Risingpressuresonruralgovernmentsandtheirleaders.Morethanever,parttimeelected officialsareshoulderedwithdevolvingadministrativeandfinancialresponsibilitiesand minimal(orno)professionalsupport.Mostsmalltownofficialsservethepublicwith fewornoresearchstaff,grantwriters,technicalassistancefundingbasesoreconomic analysts.5Theymanagerisk,domorewithlessandgetnorespect.Somerural governmentsreceivemanagementsupportfromregionaldevelopmentorganizations (RDO),butRDOsstruggleinthesameenvironmentofincreasingadministrative burdensanddecliningresources.Thesechallengesoffersomeinsightintowhy,evenat thestateandfederallevels,governmentisnolongertheprimarydestinationofchoice fortoppublicpolicyschoolgraduates.6 Flawsinthecurrentgoverningsystem.Globalizationandindustrialrestructuringare shiftingtheeconomiesofU.S.regions.Therearesignseverywherethatrural communitieswouldbenefitfromgreatercollaboration,citizenparticipationand regionalanalysis.Yet,ourcurrentsystemofgoverningrarelysupportssuch approaches.Moststateandfederalfundingoperatesinnarrow,programmaticsilosthat prohibitordiscouragecollaborationacrosssectorsandjurisdictions.Thus,rural communitiesactunilaterally,withonecommunityseconomicdevelopmentplanpitted againstanother.Publicprogramsalsoexpectswift,measurableoutcomes,despitethe realitythatmeaningfulchangerequirestimeandpatientresources. Spotty,butheartening,ruralgovernanceinnovationsintroducedbystategovernmentsand philanthropicorganizations.Forexample,theMainelegislaturerecentlyenactedanew lawtopromoteintergovernmentalcooperation,costsavingsandefficiencies.Theact will,amongotherthings,helplocalandregionalcostsavings. Therearemurmuringsofparallelproposalsinotherstatesaswell.AWestVirginia GovernorsCommissionrecentlydevelopedthreepiecesofdraftlegislationon city/municipalityconsolidation,metrogovernmentcreationandcountyconsolidation.7 Thelegislationestablishesaframeworkforcitiesandcountiestodiscussanddetermine ifanewformofgovernanceconsolidation,metro,regionalisappropriate.The

statesnewlookatregionalismmayhelpWestVirginiareimagineitselfwithout compellinglocalgovernmentstocoordinateormerge.8 Onthephilanthropicside,severalmajorfoundationssuchasBlandin,McKnightand KelloggandsomecommunityfunderssuchastheClevelandFoundationhaveputtheir moneybehindcollaboration.MinnesotasRegionalEconomicDevelopment(RED) Group,supportedbytheBlandinandMcKnightFoundations,isanambitious experimentinnewgovernance.TheGroupteststheideathatmorethan30stateand regionalorganizationscanaligntheirprinciples,effortsandresourcestosupport regionbasedeconomicdevelopmentprojects.9Similarly,theW.K.Kellogg EntrepreneurshipDevelopmentSystemsforRuralAmericaProjectcompetition, managedbyCFED,requiredthatapplicantsestablishworkingcollaboratives.10 ThistrendisunderscoredinacommentarybyCommunityDevelopmentEconomist StevenDeller: Indealingwithincreasinglycomplexpublicissuesandevertighteningresources, publicofficialsandconcernedcitizensmustlooktogovernancealternativesand nottiethemselvestotraditionalwaysofdoingthings.11 RUPRIanorganizationfocusedonanalyzingpublicpolicyimpactsonruralpeople andplaceslaunchedtheRuralGovernanceInitiativetosupportthistrendtoward effectivegovernance. EightKeyPrinciplesofEffectiveGovernance Whichgovernancepracticesmakethedifferencebetweenstagnatingandflourishing communities?Howcanthesepracticesbeadoptedbyruralleadersandsupportedby stateandfederalpolicymakers? Drawingonitspracticalresearch,RUPRIoffersthefollowingkeyprinciplesofeffective governance.Theeightprinciplesaregroupedunderthreemajorthemes:collaboration acrossstates,sustainedcitizenengagementandleveragingregionalresources. Thisguidanceistargetedtoarangeofruraldevelopmentpractitionersand policymakers,including: localleaders(formalandinformal,governmentalandnongovernmental); localandregionalinstitutions(publicschools,communitycolleges,hospitals);

intermediaryorganizationsandagencies(economicdevelopmentdistricts,state agencies,CooperativeExtensionService,statemunicipalandcounty associations); funders;and stateandfederallegislatorsandexecutives.

RUPRItruststhatguidanceoneffectivegovernancewillleadtostrongerrural developmentpracticesinthedirtandsmarterpoliciesonthehill. [Chart]EightKeyPrinciplesofEffectiveRuralGovernance Collaboration 1. Crossingsectors(public,private,nonprofit) 2. Crossingpoliticalboundaries,recognizingregions SustainedCitizenEngagement 3. Welcomingnewvoices(especiallyunderrepresentedindividualsandyouth) 4. Visioningadifferentfuture(bottomupprocess) LeveragingRegionalResources 5. Analyzingregionscompetitiveadvantages(focusonstrengths,identifyclusters) 6. Strengtheningcompetenciesoflocalelectedofficials 7. Engagingkeyintermediaries 8. Investinglocalcapital Collaboration Weknowthatwiththereductioninfundingandthesophisticationrequired fromexistingfundingsources,collaborationwillincreaseourchancesof successfullyaddressingthemanyissuesthatfacecommunitiestoday. LeAnnSimmons,UnitedWayofTreasureValley,Idaho12 Principle1:Crossingsectors Whyisthepracticeofcollaborationacrosssectorsuniversallyendorsedbutrarely accomplished?Answer:becauseitisverychallengingwork. Communitybasedcollaborationistheprocessbywhichcitizens,agencies, organizationsandbusinessesmakeformal,sustainedcommitmentstoworktogetherto 9

accomplishasharedvision.13Inthelanguageofpartneringarrangements,collaboration isthehighestandmostdifficultlevelofworkingwithothersmoreformalthan networking,cooperationandcoordination.14Butinmanyruralregions,even networkingacrosssectorscanbetough. Insomecommunities,theabyssbetweenruralelectedofficialsandcommunitybuilders isespeciallywide.(Thetermcommunitybuilderreferstoanynongovernmental individualand/orgroup,formalorinformal,workingtostrengthenthecommunityor region.15)Localgovernmentsmayengagewithcommunitybuildersinwaysthatrange fromundermining,toneutral,tosupportive.Likewise,communitybuildersmay interactwithlocalgovernmentsinwaysthatvaryfromconfrontational,toneutral,to collaborative.16 Associationsbetweenthesectorsaresovital,yettricky,thattheRoundtableon CommunityChangeattheAspenInstitutelaunchedadiscreteresearchandpractice initiativeonthetopic.TheRoundtablesprojectonLocalGovernmentandCommunity Buildingiscollectinganddisseminatinginformationabouttheprerequisitesto successfulengagementbetweencommunitybuildersandlocalgovernment.17To encouragecommunitybuildersthatlocalgovernmentcanbetrusted,isimportantin effortstoimprovecommunityoutcomesandshouldnotbeignored,theRoundtable observes: Beyondfinancing,localgovernmenthasthecapacitytoaffectlowincome communitiesinamyriadofwaysthroughitspublicpolicies,rulesand regulations,discretionarydecisionmakingauthority,purchasingandinvestment decisions,relationshipswithregionalauthorities,andsoon.18 Inthesamevein,RUPRIisencouraginglocalelectedleaderstocrosstheinstitutional faultlinesamongpublic,privateandnonprofitconstituenciestoacknowledgethatno communityiswellgovernedbyafewhighlyvocalindividualsorgroups,especiallyif thosehighlyvocalindividualsareallelectedofficials.Likewise,RUPRIispressing policymakerstoreducethenarrow,programmaticsilosthatprohibitordiscourage collaborationacrosssectorsandtoinstitutenewpoliciesthatfacilitatecrosssector partnerships. [CaseStudy1] CrossSectorCollaborationResolvesSevereHealthHazard Inearly2000,theU.S.EnvironmentalProtectionAgency(EPA)designatedalargepart ofJasperCounty,MissouriasaFederalSuperfundSiteduetodangerouslevelsoflead contamination.Businessleadersandelectedofficialsimmediatelyrealizedthatthe 10

designationcouldhavedisastrousconsequencesforeconomicdevelopmentand,most important,onthehealthoflocalchildren.Today,bloodleadlevelsamongthecountys childrenareinthesafezone,belowthenationalaverage.JasperCountyachievedthis successbysettingnarrowmindednessasideandcollaboratingacrosssectors. Intheearly1900s,JasperCountywastheheartofthelargestleadminingregioninthe world.Acenturylater,thecountydiscoveredthepriceforthoseexcessesintheformof leadandotherheavymetalsthathadbeendepositedontheland.Thelongtermeffects ofchildhoodleadpoisoningaresevere:reducedIQ,learningdisabilities,hearingloss, reducedheightandhyperactivity.Excessiveleadexposurecancausecoma,convulsion andevendeath.Theseriskswereunacceptable. Thecountysresponsewasimmediateandinnovative.Thecountycommissioner establishedanEnvironmentalTaskForceofJasperand(neighboring)NewtonCounties toprovideguidanceandleadershipinresolvingtheproblem,withhelpfromthe federalgovernment.The25membertaskforceincludedabroadmixofpublicand privateindividuals:countycommissioners,mayors,EPAandMissouriDepartmentof NaturalResourcesrepresentatives,businessleaders,schoolofficials,healthofficials, concernedcitizensandaconsultingengineer. Thediversegrouplookedatalloftheenvironmentalissuesaffectingbothcountiesand developedoneofthefirstcountylevelenvironmentalmasterplansinthenation.One innovativesolution,latercommendedbyEPA,encapsulatedleadwasteintheroadbed ofalocalhighway.Thetaskforcealsodesignedacreativepublicawarenesscampaign toeducatecitizensaboutthedangersoflead.Itincludedcoloringbooks,noleadGirl Scoutbadges,modelschoolcurriculumandmore. Theeffortsucceeded,saysformerJasperCountyCommissionerAnnaRuth Crampton,becausewesetlocalandterritorialissuesaside.Weconcentratedonthe largerenvironmentalproblemsthreateningthewelfareofJasperandNewtonCounty citizens. AdaptedfromJasperCountyswinningapplicationtothe2004NationalAssociationof Counties(NACO)CaucusCourthouseAward. Principle2:Collaborationacrosspoliticalboundaries

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Fewoftheproblemsthatfaceruralcommunitiesrespectjurisdictional boundaries.Thetruthisfewruralcommunitieshavesufficientresourcesand populationtoattractcompetitivelypricedinfrastructure,facilitiesandservices. Therefore,individualcommunitiesmustjoinwithothersincreatingregional approachestodevelopment.Likewise,itonlymakessenseforgovernmentsto allowandencouragesuchregionalcooperation. TheNebraskaCityDeclarationissuedonOctober18,2002,followingthe SummitonRuralAmerica. InruralAmerica,fencesoftenseemtocircumscribeacommunityspoliticalborders, blockingcollaborationwithneighboringtowns,citiesorcounties.Beitancientgrudges fromsportscompetitions,resentmentoverbusinesslocationdecisionsornewdesiresto blockoffthegrowingimmigrantpopulation,manyruralcommunitiesthwart collaborationacrosspoliticalboundaries. Ironically,thissinglemindedattitudeislikelyfeedingthefiresofstatecampaignsfor consolidationamongcitiesandcounties.Voluntarycooperationmaywellbeasmall communitysbestdefenseagainstcoercedconsolidation,especiallyintheefficientuse oflimitedresources. Therearelegitimatereasonswhytowns,citiesorcountiesactunilaterally.Yet,inanera ofdevolvingpublicresponsibilities,governmentcutbacksandlimitedphilanthropic resources,neighboringcommunitiesneedtoworktogether.Thisrealityisespecially trueforisolatedruralcommunities.Forservicesthatarecapitalintensive,suchas publicworks,equipmentsharingacrosscommunitiescansavemoney.Economiesof scalealsoexistinmanybackofficeservicessuchasdispatchingandpayroll.19 Itmakessensetocollaborateacrosspoliticalboundariesbecausesomanycritical economicandsocialissuesoverflowacommunitysborders.Economicdevelopment,in particular,ismosteffectivelyaccomplishedonaregionalbasis,startingwithananalysis oftheregionsuniquecompetitiveadvantages. Finally,collaborationleveragespoliticalpower.Individualtowns,actingontheirown, donthavesufficientpoliticalclouttoaffectpolicy.Aregionofcommunities,teaming together,canpromptchange. Thestarkrealityofscarceresourcesoftentimesforcescontentiousneighborstowork together.Forexample,thestateofNewMexico,theNavajoNationanditsneighboring cityofGalluparenowcollaboratingoverwaterrightstotheSanJuanRiver.The dawningawarenessofscarcityfinallybroughtpeopletogether.WhentheSanJuan 12

flowedabundantly,thequestionoffirstrightswasirrelevant.Aseveredroughtin2002 startedtheshiftinattitudes.Incommentingonthewatersettlement,aconsultantto Gallupsaid: Itsavastseachangeinthinkingonbothsidesoftheculturaldividebetween IndianandnonIndian.Itsaysthatwehaveacommonfuture,thatwehavea commondirectiontogoin,thatyourdoingwellisimportantformetodowell.20 Thechallengetocollaborationacrosspoliticalboundariesiskeepingplaceisabroader spacepromotingregionalstrategieswithoutsacrificinglocalintegrity.AsRUPRI DirectorCharlesFluhartyexplains: Acommunitysuniquecultureandcontextmustremainnestedwithinthenew regionalapproach.Whileourfuturemustnotbeconstrainedbytheperspective ofan1860surveyortheculturalcontextandcommunityframingwhichinform thesemyopiasarealsoastorehouseofgreatwisdom,passionandcommitment.21 [CaseStudy2] CollaborationAmongTownsImprovesMunicipalServices TheTownsofMapleton,CastleHillandChapmansavecapitalequipmentexpensesand providemoreefficient,betterstaffedservicesbecausetheycollaborateacrosspolitical boundaries.ThesethreesmalltownsinruralAroostookCounty,Mainehavealong historyofsharingservices.Beginningwithacooperativefiredepartment,thetowns periodicallysplitservicesandequipmentasamatterofconvenience. Inthemid1970s,thecollaborationmaturedintoamoreformalized,longterm arrangement.Thetownsagreedtoconstructamunicipalbuildingtohousegeneral governmentadministrationandthefireandhighwaydepartments.Localofficials draftedaformaljointownershipagreementthatincorporatedlongtermmaintenance andrepairsforthestructure. Inthemid1980s,townleadersestablishedamileagebasedformulaforsharing highwayexpenses.Overa12yearperiod,theseincrementaleffortsledtoa comprehensiveinterlocalagreementamongthethreetownsthatremainsineffect today.Eightypercentofthetownsannualbudgetsarenowcostshared. Theinterlocalagreementestablishesaformalrelationshipamongthetownsby definingthefollowing:eachtownsresponsibilitiestotheagreement,costsharing formulas,activitiestobeshared(nearlyallservices),andtheprocessandfinancial 13

obligationsassociatedwithjoiningorwithdrawingfromtheagreement.Theagreement worksbecausegoalsforservicesaresimilaramongthetowns;trusthasdeveloped; localofficialsareequallydedicatedtotheagreement;andtherearecleargeographic advantages(alltownsareabutting). Asaresultoftheinterlocalagreement,thethreetownssavetaxpayerdollars;havea moreefficientandbettertrainedstaff;andmaintainlesscapitalequipment(especially plowtrucks,gradersandfiretrucks).Thecollaborationisapromisingmodelforother smallcommunities. InformationprovidedbyJohnEdgecomb,TownManagerforMapleton,CastleHilland Chapman. [CaseStudy3] ScarceResourcesInspireWinningCollaboration TherealityofscarceresourcespushedseveralnorthernIdahocommunitiesanda NativeAmericantribetocrosssectorsandpoliticalboundaries.Localleaderscreated tworegionaljointgoverningagreements:onetopromoteeconomichealthandanother toworkonenvironmentalandnaturalresourceissues.Agreementparticipantsinclude BoundaryCounty,theCityofBonnersFerry,theKootenaiTribeofIdaho,theCityof MoyieSpring,andBoundaryCountySchoolDistrict#101. Byjoiningcollectively,theregionhasachievedthefollowingoutcomes: Completelyrebuiltthedowntownbusinesscorridor.Addednewconcrete streets,sidewalks,lighting,landscaping,stormdrains,ADAaccess. ReconstructedandwidenedthemainhighwayintoBonnersFerrytoinclude sidewalks,lighting,curbsandgutters. Securedfundingtoconnecttwoseparatebusinesscenterswithapedestrian underpass. Securedfundingtobuildaninternationalgatewayvisitorcenter,landscaped parkingandrestareainthedowntowncorridorofBonnersFerry. Launchedconstructionofanewregionalpublichighschoolandrenovated andmodernizedtheregionaljuniorhigh/middleschoolandallelementary schools. EstablishedanewBoundaryRegionalHealthCenterandsuccessfully recruitedphysicians,dentistsandmentalhealthprofessionalstothearea. ContractedwithEPAtocompletetheareasTotalMaximumDailyLoads studyrequirements,asrequiredbythefederalCleanWaterAct.

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SuccessfullyavoidedincludingtheKootenaiRiverBurbotontheEndangered SpeciesAct(ESA)listbyworkingcollaborativelytoestablishrecoveryefforts outsideoftheESA.SincetwothirdsofBoundaryCountyisnationalforest land,theESAisabigissue.

[CaseStudy4] CollaborationAlongtheNewRiverCorridor In1997,NewRivercommunityleadersinthemountainsofNorthCarolina,Virginia andWestVirginiacametogethertoidentifycriticalissuesanddevelopasharedvision ofworkingtogetherforthefutureoftheriver.Thisunprecedentedregionaleffortwas sparkedbytheClintonAdministrationsAmericanHeritageRiversInitiative.The InitiativewasdesignedtohelpAmericansprotecttheirwaterwaysandrevitalizetheir communitiesthroughnaturalresourceprotection,culturalresourcepreservationand economicrevitalization.TheNewhadahistoryofriverenthusiasts,butthisinitiative wasthefirsttimethatcitizensjoinedtogether,acrossabroadregion,toworkfor somethingpositive. LeaderssetouttobuildsupportfornominatingtheNewasanAmericanHeritage River.TheheritagepartwaseasytheNewisthoughttobetheoldestriverinNorth Americaandthesecondoldestintheworld,predatingtheformationofthe AppalachianMountainsandtheAtlanticOcean.Buttheorganizingworkwastough. Overlatenightsuppers,earlymorningbreakfastsandkitchentabletalksthroughout theregion,localleadersmet,brokebread,toldstories,swappedliesandplanned forthefutureoftherivertheylove.Folksfromallwalksoflifecametogether: economicdevelopers,conservationists,farmers,tourismleaders,artists,eldersand youngpeople. TheNewRivernominationcompetedwith125otherriversacrossthecountry.Elected officialsfrombothpartiesendorsedthedesignation.Citizenssubmitteddozensof lettersofsupport,alongwithhundredsofsignaturesonpetitionsthathadbeen circulatedatregionalcommunityfestivals.Creativewritingstudentswrotestories, poemsandessaysthatpaintedaliterarypictureoflifealongtheNewRiver.NewRiver leaderswererelentlessintheirpursuit.Intheend,theNewwasoneof14designated rivers. Since1998,morethan2,000citizensandnumerouselectedofficialsfrom21countiesin threestateshaveworkedtodevelopandimplementtheNewRiverworkplan.More than$20millioninpublicandprivatefundshavebeensecuredtosupportsustainable agricultureprojects,purchaseconservationeasements,plantbuffersalongtheriverand 15

streams,cleanupandrestoredegradedmines,developriverfrontparksandvisitor centers,promotedowntownrevitalizationandheritagetourismdevelopment,collect oralhistoriesanddevelopyouthcorpsprograms. Formoreinformation,contactTheConservationFund:www.conservationfund.org. SustainedCitizenEngagement Principle3:Welcomingnewvoices Iseesomanyruralcommunitiesstuckinacircularformoflogic.Ifthesame peoplekeepdoingthesamething,theyarelikelytogetthesameresult.The problemis,howdoyougetdifferentpeople?Howdoyougetdifferentideas? Howdoyougetthecommunitytoembracethesenewideas? TerryWaugh,NebraskaRuralInitiative22 ThesequestionshauntmanysmalltownsacrossruralAmerica.Itdoesnttakea doctoraldegreeinruraleconomicstoknowthatbetterresultsrarelyarisefromthe samepeopledoingthesamething.Butchangingtheleadershipmixistoughwork;it runsagainstthegrain.Thereisnofailproofformulaforgeneratingnewleaders,be theycivicleadersorelectedofficials.Buttheresarightwaytostarttheprocess:by welcomingnewvoices,especiallythoseofpeoplewhohavenottraditionallyservedin leadershippositions. WhoarethenewvoicesinruralAmerica?Sometimestheyarenewcomerswho,if genuinelywelcomedintotheprocess,cancontributefreshideasandaccesstonew networks.Newvoicesmaybepeoplewhohaveresidedintheregionfordecades,but havenot(yet)volunteeredtheirtalentsorbeenaskedtocontributetheirideas.They maybehandsthathavehelped,notmouthswhohavespoken.Newvoicesmaybe AfricanAmericansorNativeAmericanswhoareactiveintheirchurches,tribalcouncils andsportsleagues,butjudgethetownsdominantwhiteleadershipasanunwelcome mat. Newvoicesmaybeartisans,musicians,preschoolteachersandunconventionalthinkers whoseeeconomicandsocialissuesthroughadifferentlens.Thesepeopleareoften quietandarebestenlistedthroughoneononeconversationsorsmallhousegatherings.

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Newvoicesmaybewomenwhoassistwithschoolorchurchfundraisers,butdonot (yet)envisionthemselvesasleadershipmaterial.Womenstartbusinessesattwicethe rateasmenandstayinbusinesslonger.23Certainly,ruralcommunitiesarefullof womenwhocanbecomestrongpublicentrepreneurs. NewvoicesmaycomefromruralAmericastremendousgrowthinimmigrant, especiallyHispanic,populations.MostimmigrantscometotheUnitesStatesbecauseof limitedeconomicoptionsintheirhomecountry.Theybringanentrepreneurialspirit thatbreedsnewbusinessventures.Thatsamespiritcangeneratenewideasforthe communitysdevelopmentmoreideasanddifferentideasbecausetheyoriginatefrom diverseperspectivesandbackgrounds.24 AcaseinpointisGardenCity,Kansas,hometoalargemeatpackingindustry.Atleast onethirdofthecityspopulationisnowimmigrant,drawingfromMexico,Centraland SouthAmerica,SoutheastAsia,Somaliaandotherplaces.SeveralHispaniccitizens haveservedonthecitycommission,yetthetownisstillsearchingfornewvoices.Like manymunicipalities,GardenCityhostsaformalLeadershipGardenCityprogram designedtoeducatecurrentandfutureleadersinthecommunity.Afewyearsago,the programtransitionedfromfocusingonindividualswithpositionsandconnectionsto focusingonpeoplewithpassionandconviction.Astheprogramdirectorexplains: Wewerentseeingasmuchchangegeneratedinthecommunitybygraduatesof theprogramaswewantedto.Wethinkeffectiveleadershipcomes,first,from selfawarenessandpersonalconviction,notpositionandconnections.25 Lastbutnotleast,newvoicesmaybeyouth.RuralAmericalamentstheexodusof youngpeople,yetfewcommunitiesproactivelyengageyouthinlocaldecisionmaking. Why?Youthleadershipprogramsimpartskillsforyoungpeopletopracticeintheir communities.Yet,thecommonresponsetoyouthspresenceis:Wonderful,hereis someonetosellthedonutsordothecleanup.26Ifmoreyoungpeopleservedonofficial planningcommittees,orchestratedlocaleventsandgainedentrepreneurshipskills, perhapsfeweryouthwouldleavetheircommunities.Ormaybemoreyouthwould returnhomeyearslatertoraisefamiliesandstartnewbusinesses. TheHometownCompetitivenessprogram(HTC)implementedthisapproach.A collaborativeeffortoftheHeartlandCenterforLeadershipDevelopment,theRUPRI CenterforRuralEntrepreneurship,andtheNebraskaCommunityFoundation,27HTC (www.htcnebraska.org)isacomprehensivestrategyforlongtermruralcommunity sustainability.Itencouragescommunitiestotakeactioninfourstrategicareas leadership,youth,entrepreneurshipandcharitableassets.Thegoalofyouth 17

developmentistosupportandenhancetheideaofadultsandyouthworkingtogether tocreateopportunitiesforyouthtostayinorreturntothecommunity. HTClearnedlessonsaboutbroadyouthengagementbywatchinghowrural communitiestalkabouttheiryoungpeople.Peoplebragabouttheassetsoftheirtop scholarsthestudentswholeavehomeafterhighschoolandrarelyreturn.Butthey forgettorecognizetheassetsofyouthwhoarenotstraightAstudentsthekidswho arenotreinforcedbytraditionalacademics,butcouldbebuddingentrepreneursor tradespeople.HTCchallengescommunitiestoconnecttheseyouthtoentrepreneurial developmentopportunitiesandtoofferscholarshipstoyouthwhochoosetoremain closetohome. Anotherorganizingtoolforcivicengagement,includingyouth,isIntergenerational Dialogue&Action,anunusualprocesscreatedbyJamesGambone.Aspartofan overalleconomicdevelopmentstrategy,theID&Aprocessinvolvesallgenerationsina community.AnIntergenerationalDialogueeventisaoneday,sixhourmeetingin whichcitizensofallagessharetheiruniqueperspectivesonacommunityselectedissue anddevelopactionplansforchange.28Theexperienceallowsinformalleadersand novelideastoemerge.Becausesolutionsarisefromthecommunityitself,theyusually areembracedbythemajorityofresidents.29 [CaseStudy5] NewVoicesMendPoliticalFences ThefollowingisaninterviewwithKuna,IdahoCouncilmemberZellaJohnson,former presidentofKunaACT(AllianceforaCohesiveCommunityTeam),agrassroots citizensgroup. Everycommunityhasitsissuesandourswasthatcommunicationwasterrible.The communitywasdivided.Youwereononesideoranother.Therewerenosynergistic qualitiestothecommunitywhatsoever. Andtherewasnopublicinput.Thecitycouncilandthemayorprettymuchdidasthey pleased.Theywouldsay,thisiswhatweregoingtodoandthatsthewayitis.People becameangrybecausetheydidntfeeltheyhadavoiceinanyofthedecisions.Soa groupofusthoughtthepeopleneededmoreofasayastowhatwasgoingonintheir communityandtheyneededtobuckthesystemalittlebit.Thatswhenweorganizeda studycircle.

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(Astudycircleisagroupof812peoplefromdifferentbackgroundsandviewpoints whomeetseveraltimestotalkaboutanissue.Inastudycircle,everyonehasanequal voiceandpeopletrytounderstandeachothersviews.Theydonothavetoagreewith eachother.Theideaistoshareconcernsandlookforwaystomakethingsbetter.A facilitatorhelpsthegroupfocusondifferentviewsandmakessurethediscussiongoes well.) IwouldsaythatthestudycirclewasthereasonIdecidedtojointhetowncouncil. WhenIsatinthestudycircle,IrealizedthatIwasnttheonlypersondisgruntledwith thecurrentgovernment.IdidntthinkforamillionyearsthatIwouldeverrunfor office,butIcouldseethatweneedednewleadershipandachangeinthecommunity. Weneededtohavemoredemocracy. IfeelthatthedynamicsofKuna,andhowwecommunicate,havecompletelychanged duetothestudycircleprocess.Now,whenthecommunityconfrontsbigissueslike schoolreform,comprehensiveplansandeconomicdevelopment,thepeoplesay,lets takeittostudycircles. AdaptedfromaninterviewpublishedinFocusonStudyCircles,Fall2004,StudyCircles ResourceCenter.Moreinformationaboutstudycirclesisavailableat www.studycircles.org. [CaseStudy6] AUniqueResponsetoRuralYouthBrainDrain ThesmalltownofElsa,Texasislocated15milesnorthoftheTexasMexicanborderin theRioGrandeValley.Forgenerations,thisregionhasbeenisolatedgeographically andsocially.Intheearly1920s,realestateanddevelopmentcompaniescameintothe area,creatingwhatisstillknownastheMagicValley.Theybuiltaneconomy dependentonuneducatedandpoorlypaidMexicanlaborers. TheregionalEdcouchElsaHighSchool(EEHS)servesthestatesfourthpoorestpublic schooldistrict.Approximately98percentofthestudentbodyisofMexicanorigin.Since 1992,EEHShasoperatedanationallyrecognizedcollegeplacementprogram,sending morethan80highschoolgraduatestoIvyLeagueuniversities.Thisachievementisa tremendousoneforaschooldistrictinwhichapproximately90percentofthe householdshaveanannualincomeoflessthan$10,000andfewparentshaveahigh schooldiplomaorfluencyinEnglish.

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In1997,localleadersestablishedtheLlanoGrandeCenterforResearchand Development,aschoolandcommunitybasedorganizationhousedatEEHS.The Centernurturesgrassroots,youthdirectedprojectsaimedatsolvinglocalproblems. Thisuniqueagendagrewoutofits1997workmappingcommunityassets.Localyouth whowereleavingtheEdcouchElsacommunityinpursuitofhighereducationatelite universitieswereamongthemostcriticalassetsidentified.TheCenterviewedthistrend notasabraindrain,butasahemorrhagingofcommunityassets.Elsasleaders soughttoreclaimtalentedhumanresourcesbyengaginglocalyouth. InJune1999,ErnestoAyala,a1995graduateofBrownUniversity,returnedtoElsato givesomethingbacktothecommunity.HiredastheCentersDirectorof CommunityBasedResearch(nowitsDirectorofFinance),Ayalataughtstudentshow toemploysurveyresearchtoidentify,understandanddevisesolutionstopressing communityproblems. Today,youthdrawonavarietyoftoolstoresearch,strategizeandcommunicate solutionsforcommunityandeconomicdevelopmentconcerns.Throughanemaillist serve,manyEEHSgraduatescontributeideasandstrategiesforprojectsbackhome. Somestudentsreturntothearea,duringschoolandsummervacations,toorchestrate communityresearch,communicationsandpolicydevelopmentefforts. TheCentersworkhascreatedamultitudeofjobs(parttimeandfulltime)and providedhighschoolstudentswithprofessionalskills(inresearch,interviewingand radioandvideoproduction)forfuturecareers.Equallyimportant,theCenteris groundingkidsinthecommunity.AsCenterExecutiveDirectorFranciscoGuajardo explains,Whenkidsunderstandtheircommunityandareproudofit,theyhavea reasontocomeback.30 AdaptedfromacasestudyonElsa,TexasinTechnologyandGritattheGrassroots,a publicationoftheNationalCenterforSmallCommunities.31LlanoGrandeCenterfor ResearchandDevelopmentWebsite:www.llanogrande.org. Principle4:Visioningadifferentfuture Agenerationofworkincommunitydevelopmenthastaughtusthatsuccessful communityrenewalinvariablyspringsfromwithin,whenthepeoplewhocare aboutacommunityjointogetherinfiercedeterminationtorevivetheircivicand economicfortunes,whatevertheobstacles. 20

ProgramfortheRuralCarolinas,TheDukeEndowment32 Thrivingcommunitiesdovisioningfromthebottomup.Regrettably,mostcommunities doexactlytheoppositetheyplanfromthetopdown.Typically,acommitteeofkey decisionmakersexaminestheregionsstrengths,weaknesses,opportunitiesandthreats (SWOTanalysis)anddesignsavisionforthefuture.Thevisionistranslatedintogoals, packagedintospecificprojectsandpresentedtothecitizenry.Consultationwiththe publictakestheformofmarketingthevision,goalsandprojectsthroughnewspaper articles,Websitepostingsandpublicmeetingsaftertheplanisdeveloped.Thepublicis informed,butnotengaged.33Thisapproachisineffectivegovernance. Bottomupvisioningoperatesdifferently.Ithonorstheprinciplethateveryonehasa say;nooneownstheprocessnotthesparkplugs,thechampionsorthecityfathers. Visioningbeginsnotwithacommitteeofkeydecisionmakersbutwitheveryday people:seniorslivingonfixedincomes,retailclerks,highschoolstudents,lowincome families,shopowners,parentsofyoungchildren,governmentworkersandanyoneelse whochoosestoparticipate. Ameaningfulvisioningprocessequipsordinarypeoplewithsufficientknowledgeand toolstorationallychartadifferentfuture.Ittruststhatwhenyouconnectpeople, productivethingshappen,nomatterhowmessytheprocessfeels(especiallyatthe onset).Equallyimportant,theprocesshashonestfollowthrough.Asanexperienced ruraldevelopmentpractitionerexplains: Peoplehavealotofexperiencesinbrainstormingandvisioningthatarenot valuable.Theconvenerssaythattheywanttohearpeoplesfeelingsandideas, buttheoutputgoesnowhereandpeoplefeeldiminished.Itsnotatruthful process.34 Avarietyofbottomupvisioningapproachesaretaughtand/orledbytheExtension Service,communityfoundations,countyplanners,privateconsultantsandothers.The individualtechniquesvary35,butallvisioningshoulddothreethings.First,visioning shouldturntraditionalstrategicplanningonitshead(seefigurebelow).Themost legitimatevisioningbeginswithcitizeninputandthengraduallyevolvesfrombig picturevisionstocommunitygoalstoconcreteprojects.Bybringingpeopletogetherto collaborativelycraftavisionforthefuture,ideasbecomerealityfasterandwithgreater consensus. [Figure]VisioningCreatesNewRolesforCommunityCitizens36 ADDFIGUREHERE.PULLFROMPDF 21

Second,visioningshouldembraceassetbasedthinking.37Theactoffocusingonassets ratherthanproblemsorneedsrevolutionizesacommunitysperspective.Finally, visioningshouldbalancethetough,bigpictureworkwithachievableprojects.As futuristJoelBarkerexplains:Visionwithoutactionismerelyadream.Actionwithout visionjustpassesthetime.Visionwithactioncanchangetheworld.38Inthearenaof communityandeconomicdevelopment,peopleoftenacttoolongbeforetheyplanor plantoolongbeforetheyact. Theoverplanningcommunitiesdotalltheis,crossallthetsandsetallshortterm projectsaside.Whenplanningisdivorcedfromaction,peopleoftenlosefaithand interestandtheprocessdiesonthevine.39Elaborate,timeconsumingandexpensive planningexercisestypicallydontworkwellformanyruralcommunities.Other communitiesthinktoosmalltheysitonthebenchesonMainStreetandgonofurther. Thesecommunitiesaresofocusedonindividualprojectsthattheyneverdevelopthe capacityfordeepandlastingchange.40 Communitiesthatcanthinkbig,whilealsoidentifyingandcarryingoutmanageable projects,arebetterabletogenerateandsustaincommunityengagement.Concrete resultsbreedconfidenceandenergy;publiccelebrationsoftheresultsbuildsupportfor thetougher,biggerpicturework. LeveragingRegionalResources Principle5:Analyzingtheregionscompetitiveadvantages Ruraleconomicdevelopmentmustfocusontheuniquestrengthsofeacharea, ratherthanconcentratingonamelioratinggenericweaknesses. MichaelPorter,CompetitivenessinRuralU.S.Regions41 Everyruralregionisunique.Certainly,manyruralareassharecommonsocialand economicchallengesassociatedwithlowpopulationdensity.Yet,nosingle developmentstrategysuitseveryruralregion.Tomovetowardsprosperity,rural communitiesmustcollaborateacrosspoliticalboundariesandcapitalizeontheregions distinctivecompetitiveadvantages. Successfuldevelopmentpoliciesorstrategiesareregionspecifictheybuildonwhatis uniqueandvaluabletotheregionsresidents.42Thisfundamentalingredientof governancecanbeaccomplishedwithoutsurrenderingacommunitysindividual identity. 22

 Therearemanyapproachestoanalyzingaregionseconomiccompetitiveness.But regardlessoftechnique,thereisgrowingconsensusintheruraldevelopmentfield abouttheimportanceofassessingregionalcompetitivenessandconductingcluster analysis.AsHarvardUniversityEconomistMichaelPorterexplains: Viewingregionaleconomiesintermsofclustersiscentraltounderstandingthe competitivenessofruralareasandhowitcanbeimproved.Eachruralareawill differinitsclustercompositionand[forruralregionslinkedtourbanareas]in theopportunitiescreatedbytheclusterstrengthsinnearbymetropolitanareas.43 Clusteranalysisexaminesindustrialsectorsinacomprehensiveway.Itlooksnotonly athowindividualbusinessesinasectorarecompeting,butalsoattheoverall environmentthatsupportssuchbusinessesthesuppliers,workers,educational institutions,wholesalers,endusersandgovernmentregulators.44 Manyruralregionsarehighlydependentonparticularsectorssuchasmanufacturing, textiles,woodproducts,naturalresourcesindustries,healthcare,governmentand agriculture.Agricultureisasmallpartoftheoveralleconomyinmostcounties.Inthe smallernumberofcountieswhereagriculturedoesplayapart,itoftenonlymakesa modestcontributiontotheregionsemployment.45 Unfortunately,ruralregionshavesparseaccesstorigorous,unbiased,andaffordable analysisofregionalclustersandcompetitiveadvantages.AsFluhartyremarks: Publicdecisionmakershavenodearthofconsultantswillingtoextractdollars fromthepublictillwithblackboxsolutions.Likewise,many[program experts]offerturfbasedsolutions.Lackingthisqualityanalysis,publicdecisions willoftenremainincrementalandlessthanoptimal.46 Ruralregionswouldbenefitsignificantlyfromgreaterinvestmentsinregional assessmentresources.ThereareafewexcellentWebbasedresourcesthatprovidefree orlowcostcountyleveldata(seeCommunityEconomicToolbox).Yet,exceptfora limitednumberofCountyExtensionoffices,economicdevelopmentdistrictsandrural communitycolleges,economicanalysesarenotprovidedasapublicgood.Unless significant,newinvestmentsaremadebystateandfederalgovernmentsormajor foundations,accesstothesedecisionsupporttoolswillremainhighlylimited. [CaseStudy7] CommunityEconomicToolbox 23

TheCommunityEconomicToolbox(www.economictoolbox.geog.psu.edu) providesdataaboutacountyscurrentandhistoricalperformance.Userscantakea touroftheirlocaleconomytohelpanswerquestionslike: Whatarethecurrentemploymentconditionsinourcommunity? Whatpartsofthelocaleconomyhavebeengrowing? Whichindustrieshavebeendeclining? Howdoesthelocaleconomycomparetoothernearbyeconomies? Whatarethefactorsleadingtolocalemploymentgrowth? Howdoweidentifynewopportunities? TheToolboxoffersthefollowingtools: ArelatedWebsite,PovertyinAmerica:OneNation,PullingApart (www.povertyinamerica.psu.edu)examinescommunitysocialandeconomicconditions nationwide,usinganewlydesignedindexofeconomichealthandeconomicdistress. [CaseStudy8] TrueNorth:NortheasternMinnesotasNewRegionalIdentity Historically,northeasternMinnesotahasdependedontwocommoditiesironoreand timber.Theriseandfallinironandtimberpriceshasresultedinarollercoasterridefor theregionseconomy.Overthepasttwodecades,thesituationhasworsened.Dramatic consolidationinironactivityledtoasharplossofjobsintheregion.Inthe1980s, miningaccountedfor50percentofthejobsand60percentoftheincomeinnortheast Minnesota.Today,miningrepresentslessthan10percentofboth. Thiseconomicslideledmanygroupstoenvisionaneweconomicfuturefortheregion. Manyideaswerefloatingaroundtheregion,buttherewasnowaytoweavethevarious threadsintoasingleplan.In1999,respondingtothegap,theMinnesotaStateColleges andUniversitiesSystemdecideditwastimetorethinkhowthemanycommunity collegesinnortheasternMinnesotawereorganizedandgoverned.Fortheirpart,the Asnapshotofimportantlocaleconomicindicators. Examinationofhistoricalperformanceandthetrendsfortheseindicatorsin ordertodeterminecurrentdirections. Locationquotientstoidentifylocalstrengthsandopportunities. Shiftshareanalysistohelpidentifylocalgrowthengines. Apointertolivingwageestimationsfortheregionaccordingtovariousfamily sizes. Thetypeofindustriesthatpaylivingwagesinthearea.

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communitycollegeswerebeginningtoseetheneedtopoolresourcestosave administrativecosts.Theyalsorealizedthattheeconomicandfiscalcrisisspanned severaltownsandcountiesintheregion. Theytookthedramaticstepofreorganizingthegoverningstructureoftheregions communitycolleges.Fivecommunitycollegescametogetherunderonesuper regionalumbrellawithonepresident.Thatumbrella,theNortheastMinnesotaHigher EducationDistrict(NMHED),representedaregionalmasterplantoaddressthelifelong learningneedsofarearesidents. ThecreationofNMHEDhasbeenacatalystforcriticalchangesinotherkeyinstitutions intheregion.Afterseeingsomeofthebenefitsoftheregionalcommunitycollege, governmentsthroughouttheregionhavebeguntocooperatemoreoftenandmore extensively.TheRangeAssociationofMunicipalitiesandSchoolsandtheArrowhead GrowthAllianceserveasplacestoidentifyhighpriorityprojectsandopportunitiesto shareresources.Newmultijurisdictionalpartnershipsalsohaveformed.TheCentral RangeInitiativeisbringingtogetherfivesanitarydistrictstoexplorestrategiesfor redevelopingunusedwaterways. Inshort,onesmallchangeingovernancethebirthofasuperregionalcommunity collegecreatedacascadeofchangesintheinteractionsofkeyinstitutionsandthe decisionmakingprocess.Today,theregionalthinkingapproachhasreceivedanew identity.TrueNorthwasestablishedattheNHEDtobeanumbrellaforthenew regionalpartnership.NMHEDPresidentJoeSertichdescribesTrueNorthasabrand identityforournewregionalstrategy.Inessence,theregionscommunitycollegehas becometheinstitutionalhomeforanewregionaldevelopmentstrategyandaplace wherenewregionalinitiativescometogether.47 [CaseStudy9] HandmadeCrafts:BuildingWesternNCsSectoralEconomy UndertheleadershipofHandMadeinAmerica,aregionalnonprofit,communitiesin22 countiesofwesternNorthCarolinahaveworkedformorethanadecadetocreatea sectoraleconomybasedonthehandmadecrafttraditionsofSouthernAppalachian mountainresidents.Thisregional,assetsbasedapproachiscounteringruralNorth Carolinastoughrealitiesoffactoryclosings,jobexodusoverseas,agingpopulation, risingservicecostsandshrinkingtaxrevenues. Craftheritagetourism,smalltownrevitalizationandadaptivereusesofabandoned landfillstogenerateglassblowingcraftbusinessincubatorsarejustafewoftheasset basedeconomicdevelopmentinitiativesthatarehelpingtoconnectWesternNorth 25

Carolinacitizensandcommunitiesacrossridgesandrivervalleys.Theinvisiblecraft factoryishelpingtostrengthencommunitiesineconomictransition,whileprotecting naturalareasandempoweringworkersintraditionallydistressedareas.48 HandMadeinAmericainspirescommunitystrategiestoenhancetheregionsrole, nationallyandinternationally,withinthehandmadefield.HandMadeinAmerica workstoimplementenvironmentallysustainableeconomicsolutionsthatemphasize thecraftindustry,enhanceopportunitiesinthemarketplaceanddevelop entrepreneurialstrategiesfortheregionscraftsartisans.AsexecutivedirectorBecky Andersonexplains:Wedontteachcraftsmaking,ormakeorsellobjects,butwedo serveasasupportsystemforcraftspeopleandthecraftindustry.49 Principle6:Strengtheningthecompetenciesoflocalelectedofficials Fewpeoplewhogetelectedtolocalgovernmentofficearepreparedforit.Ontopof budgeting,personnelprocedures,publicsafetyandliabilityissues,thereare developmentquestions,landuseissues,andrelationshipswiththemedia,tonameonly afewarenas.Themajorityofsmall,ruralcommunitiescannotaffordaprofessionalcity ortownadministrator,somanagementdutiesrestwiththenovices.Evenveteranrural electedleadersoftenfindtheresponsibilitiesdaunting. Giventhedemandsofthejob,onemightaskwhylocalofficialsdonotgetthetraining andsupporttomoreassuredlygoverntheircities,townships,orcounties.Whydont moreruralleadersdeveloptheskillstotacklethebigchallenges,suchasjobcreation?Is itbecausesofewlocalgovernmentleadershipprogramsbuildthenewcompetencies thattodaysofficialsreallyneed? Theansweriscomplex.First,manyelectedofficialsseetheirroleasprescribedand limited.Ruralgovernmentleadersserveparttime,withlittleornocompensation.They areshopowners,dentists,schoolteachers,homemakers,entrepreneursandelected officials.Giventhenumberofhoursinaday,ruralelectedofficialstendtofocusonthe daytodayfinancialandlegaldutiesofgovernmentaloffice.Thiscaretakermindsetis entirelyunderstandable,butitmeansthathigherlevelcompetenciessuchashowto enhancecitizenparticipationorcreateavisionforthefutureareseldomacquiredor used. Second,oursystemforstrengtheningthecompetenciesoflocalgovernmentleadersis scattershotandunderresourced.Localgovernmentleadershiptrainingdoesexist,but theofferingsvarygreatlyinqualityandavailability.Assumingtheycantaketimeoff 26

fromtheirdayjobsoreveningfamilyobligations,ruralofficialsmayhavetotravel considerabledistancestoparticipateintrainingprograms,sometimesattheirown expense. Moststategovernmentdepartmentsoflocalaffairshavescaledbacktheireducation efforts.Severalnationalassociationsoflocalgovernments50holdannualeducational conferencesandworkshops,buttherequiredexpenseandtimetendstodiscourage attendancebyparttimeruralofficials.Quiteafewfoundationssupportlocalleadership initiatives,buttheyaretypicallytargetedtoemergingcivicleaders,notlocal governmentofficials. Unfortunately,thelocalofficialswhowouldmostbenefitfromleadershiptrainingmay bethoseleastlikelytoseekit.51Theymaycomefromlimitedresourcetownsthatwould mostprofitfromregionalandcollaborativestrategies,butaretooentrenchedtochange. Ortheymayjustbewornoutbylongmeetings,toughbudgetingdecisionsand pressurestosecureadditionalfinancingorcomplywithstateandfederalmandates nottomentiontheirdayjobs. Becausethehealthofruralcommunitiesislinkedtoaneffectivegoverningsystem,itis increasinglyimportantforruralofficialstoacquirethesehigherlevelcompetences. Citizensandprivateandnonprofitleadersmustchampionskilldevelopmentforarea ruralelectedleaders.Theprocessstartsbylearningwhichagenciesororganizationsin theregionandstateofferqualityleadershiptrainingforruralelectedofficials. Manystateuniversitiesoffersomevarietyoflocalofficialtraining,ofteninpartnership withstateassociationsofcities,townshipsorcounties.Thestateassociationroleisto legitimizeandmarkettheprogramtoitsmembership.Eachlandgrantinstitutionhas itsownprogramprioritiesorbannerprogramstargetedtolocalgovernments,butthe strongestprogramsincorporatetechnicalfollowupbylocalcountyextension specialists.52Forafee,stateassociationsofcities,townshipsandcountiesoffer leadershiptrainingfortheirmembersatannualeducationalconferencesandoccasional workshops.Someprogramsareespeciallytargetedtosmallorruralcommunities,such astheTexasMunicipalLeaguesSmallCitiesProblemSolvingClinics. Onlyafewstateshavesophisticatedstatewideorganizationsfocusedonruralpeople andcommunities.TheNorthCarolinaRuralEconomicDevelopmentCenter,anon profitorganizationcreatedin1987,isprobablythebestexampleofthissupport.The RuralCenterservesthestates85ruralcounties,withaspecialfocusonindividuals withlowtomoderateincomesandcommunitieswithlimitedresources.Itconducts

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researchintoruralissues,advocatesforpolicyandprograminnovationsandbuildsthe productivecapacityofruralleaders,entrepreneursandcommunityorganizations. For20years,theRuralCenterhasmaintainedandbroadeneditssupportamongNorth Carolinaleaders,addingorspinningoffprogramsandeffectivelybecomingthehubof thestatesmultifacetedruraldevelopmentefforts.Ithascreated,testedand implementednumerousnovelprograms,manyofwhichhavebecomemodelsforthe nation.Buildingonthiswork,theRuralCenterisleadingamajorinitiativetoincrease thevitalityofNorthCarolinassmalltowns.53 Manyregionaldevelopmentorganizationsprovideleadershiptrainingand/orhandson managementassistancetoruralgovernments.Thenamesvaryeconomicdevelopment districts,regionalplanningorganizations,areadevelopmentdistricts,regional developmentcommissionsbutgenerallytheseorganizationsassistmemberlocal governmentsintheareasofinfrastructure,transportation,housingand/oreconomic development.Toreceivetraining,informationandrepresentation,mostregional organizationsbelongtotheNationalAssociationofDevelopmentOrganizations,the NationalAssociationofRegionalCouncils,orboth. [CaseStudy10] TownshipGovernanceAcademyStrengthensOfficialsCompetencies InOctober2003,theMichiganTownshipsAssociation(MTA)madeanintriguing observation:formanyelectedofficials,serviceonthetownshipboardwasnotas rewardingasitcouldbe.Townshipleadersoftenlackedthenecessaryknowledgeand skillstomakeeffectivedecisions.Theyneededfreshideas,moreadvancedskillsand newwaysofconductingbusinessasatownshipboard.Theirpublicservicealsoneeded tobemoreoutcomebasedandresultsoriented. Asthelegislativeadvocateandeducationalassociationfor1,242Michigantownships and6,526electedtownshipofficials,MTAdecidedtotakeaction.MTAcreatedthe TownshipGovernanceAcademy(TGA),avoluntarycredentialingprogramfor townshipleaders.Thehighimpactlearningprogrambuildsthecompetenciesofboth newlyelectedandveterantownshipofficials. AcadreofexperiencedTGAinstructorsleadinteractivecoursesinthreecategories: foundationcourses(corecompetencies28requiredcredits),boardsmanshipcourses (visioning,boarddecisionmaking24credits)andelectives(18credits).Amixofhalf andfulldayclassesisofferedonarotatingbasisatselectedlocationsthroughoutthe state.TograduatefromtheAcademy,candidatesalsomustdemonstratethattheyhave appliedalearnedskilltotownshipgovernance. 28

 Thecompleteprogramcostsapproximately$1,200to$1,500,excludingpersonal expenses.Limitedscholarshipsareavailable. MoreinformationaboutTGAisavailableatwww.michigantownships.org. Principle7:Engagingkeyintermediaries ResearchatHarvardUniversitysArtandScienceofCommunityProblemSolving Projectexplainsthesubtleagentsofchangeincommunities.XavierdeSouzaBriggs callstheseagentsintermediaries:people,organizationsandinstitutionsthataddvalueto theworldbyconnecting,supportingandenablingotherstobemoreeffective.The specialpowerofintermediariesisthattheymakethingshappenwithoutcalling attentiontothemselves.Theyinitiate,butthenstepback,sothatotherscanownand takecreditforwhathappens.Asrespected,honestbrokers,intermediariesassumeroles thatotherscannoteasilyperform.Sincetheyfrequentlyareaheadofthecurve, intermediariesoftendevelopthemarketforwhattheywishtoprovide.54 RuralsociologistsCorneliaandJanFlorausethetermbridgingcapitaltotalkaboutthe vitalconnectionsamongdiversegroups,includingthoseoutsidethecommunity. Effectivecommunitiespossessbothbondingcapital(connectionsamongsimilar individualsandgroups)andbridgingcapital.55Intermediariesareamongthediverse groupsoutsidethecommunitythatprovidebridgingcapital. Oneofthecrucialdifferencesbetweenstagnatingandflourishingruralregionsisthe existenceofengagedintermediaries.Theymaybecloseby(suchascommunity colleges),inthelargerregion(suchascommunityorregionalfoundations),orfaraway (suchascommunityassistanceorganizations/agenciesorprivatefoundations).They maybecomeengagedontheirownorbesolicited.Theyserveanarrayofroles: facilitators,educators,capacitybuilders,socialinvestors,performancemanagers, coalitionbuildersandorganizersofnewgroups.56 Briggsidentifiesfivetypesofinstitutionsororganizationsthatserveasintermediaries: government,civicornongovernmentalorganizations,foundationsorfunders,issue focusedorganizationsandcapacitybuildinginstitutions.Agivencommunitymaybe hometoanyoneormoreoftheseintermediaries,oftenwithdiverseandoverlapping functions.57Forruralcommunities,theremaybejustoneortwointermediaries effectivelyengagedintheregionandtheintermediarymayservemorethanonerole. 29

Ruralcommunitycollegesareamongthemostpowerfulruralintermediaries. Communitycollegeshaveevolvedoverthelasthalfcenturyfromliberalartsschools preparingstudentsforfouryearcolleges,toschoolsmorefocusedontechnicaland vocationaltraining,oftenwithmissionsexplicitlyorientedtowardlocaleconomic development.Approximately40percentofallcommunitycollegesareinruralareasor smalltowns;oftentheyaretheonlyinstitutionsofhigherlearninginthearea.58 Thequalitiesofruralcommunitycollegesmakethemstrongintermediarycandidates. Communitycollegesarepoliticallyneutralinstitutionsthatarerespectedandtrustedby diversepopulationswithintheirregion.Theyaredeeplyrootedintheircommunities. Becausecommunitycollegesservemulticountydistricts,theyarenaturalplayersin regionaldevelopmentefforts.Concurrently,ruralcommunitycollegesarebeing challengedtoactualizetheirbroadermission:educationforcommunityandeconomic transformation.59 Communityfoundationsareanotherstrongintermediaryinruralregions.Community foundationsarecommunitybased,nonprofitorganizationsthatraiseandmanagea widerangeofendowedandnonendowedfundsfromindividualandorganization donors.Inrecentyears,theyhavebeenamongthefastestgrowingsourceofcharitable dollarsintheU.S.Communityfoundationsusethestreamofrevenueproducedby thesefundstomakegrantsandconductcommunitybettermentprogramswithinthe specificgeographicareaservedbythefoundation.Beyondgrantmaking,most communityfoundationsperformkeyintermediaryrolesinconvening,visioning, informationgathering,knowledgesharingandresourcedevelopment. Ruralcommunityfoundationsareuniqueintheirabilitytoseeandinfluenceawide andinterconnectedarrayofruralcommunityandeconomicdevelopmentchallenges andopportunities.Theycanrespondquicklytoawiderangeofissuesandbring diverseandsometimesdivergentmembersofthecommunitytogetherinanonpartisan manner.Inruralareas,communityfoundationsareoftentheonlyinstitutionsthatspan themanyjurisdictionsinanaturaleconomicandculturalregionandarepositionedto pulltheregiontogether. Communityfoundationsalsohavepermanence.Becausetheybuildpermanent endowedfundsfromlocaldonorsdedicatedtothegeographicareatheyserve, communityfoundationsareinaruralregiontostay.60 Theengagementofvigorousruralcommunityfoundationsissovitaltoruralregions thattheAspenInstitutesCommunityStrategiesGroup(CSG)createdalearning

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networkfocusedonRuralDevelopmentPhilanthropy(RDP).ThreeoftheRDPsfour learningquestionscenterontheintermediaryrolesofcommunityfoundations: Howcancommunityfoundationsusegrantmakingandprogramactivitiesto enhancetheeconomicsecurityoflowincomeruralfamiliesandcommunities? Howcancommunityfoundationsraisesignificantendowmentfundsfromand forruralcommunitiestosupportruralcommunityeconomicdevelopment? Howcanacommunityfoundationbuildaregionsawarenessthatitsidentity andeconomicandsocialwellbeingdependuponbothitsruralandmetropolitan areas?61 Insomecases,themosteffectiveintermediariesarepeople,organizationsorinstitutions considerablyoutsidethearea.Theseexternalintermediariescansometimesurgethe communityinnewdirectionsandthengetoutoftheway.Agoodexampleofexternal mediationisRuralDevelopmentInitiatives(RDI),anonprofitorganizationspunoff fromtheOregonEconomicandCommunityDevelopmentDepartmentin1992. Whenacommunityfindsitselfwithadauntingchallengeornewopportunity,RDI assistslocalleaderstodevelopnewskillsandmoreeffectiveorganizationalstructures, actionplansandresourcenetworks.Theorganizationhasworkedinover200 communitiesandgraduatedatleast2,100ruralvolunteersformalandinformal leadersfromitsoriginalandcurrent(mostlycosponsored)leadershipcurricula:the RuralFutureForum,theFordInstituteLeadershipProgram,LeadershipPlentyand onetothreedaytrainingseminars.62RDIhostsapopularRegardstoRuralannual conferenceanddirectsotherconveningprojectsandnetworksacrossruralcommunities (e.g.,ConnectingOregonforRuralEntrepreneurshipKelloggFoundationfunded collaborative).AlthoughRDIisaparticularlyrobustintermediary,similar organizationsoragenciesexistinotherstates. [CaseStudy11] AStrongIntermediary,NewVoicesandGrassrootsVisioninginRuralNorthern California TheHumboldtAreaFoundation(HAF),inruralnorthernCalifornia,illustrateshow powerfulintermediariescaninitiateanactivityandthenstepbacksothatothersown andtakecreditfortheresults.Thenonprofitcommunityfoundationservesasan independentstaginggroundforresidentstobuildsocial,economicandenvironmental prosperity,individuallyandinconcertwitheachother,inCaliforniasNorthCoast. HAFbelievesthatgoodideas,andthehardworknecessarytoaccomplishthoseideas, comefromallfacetsofthenorthcoastcommunity.Tofacilitatetheinterchange,the Foundation,togetherwithtwootherintermediariesHumboldtStateUniversityand 31

theCollegeoftheRedwoods,thelocalcommunitycollegeconvenedRedwoodCoast RuralAction(RCRA). RCRAbringstogetherdiversegrassrootscivicleadersfromthefourruralcountiesof DelNorte,Humboldt,MendocinoandTrinity.Theconvenersprovideinfrastructure andstaffing,butnevercontroltheagenda,whichcomesfromRCRAworkinggroups ontheeconomy,communityhealthandtheenvironment. ThegoalofRCRAistoinspireintentional,healthyregionaldecisionmakingandaction thatconservesnaturalresources;diversifiesandexpandstheemploymentbase; maintainsaruralqualityoflife;caresforthehealthoftheregionspopulationand communities;andexpandsopportunitiesforfamilyeconomicsuccess.Itsatallorder, butonethatisalreadymovingforward. Inclusiveregionalleadershiphasemergedfromthefourcountiescoveringanarea largerthanMassachusetts.Atthetableforthefirsttimeeachcommittingatleast10 daysayeararetribal,environmental,businessentrepreneurial,educationaland communityhealthleaders.Theyrepresentthepoliticalleft,rightandcenter.Themost difficultissuesintheregionareexplicitlyonthetable. RCRAisthesecondandregionalizedoutgrowthoftheInstituteoftheNorthCoast (INC),aHumboldtCountypilotprojectinitiatedin1996.INCsoughttoassertcitizen leadershipoverfailedattemptstoreviveadecliningresourcebasedeconomyand respondtopressingsocialissues,includingdomesticviolence.INCgenerateda completelyrestructuredeconomicdevelopmentsystemofsupportforentrepreneurs andbusinessclustersandbroughtnewcooperationbetweenbusinessand environmentalinterests.TheregionalizedRCRAisfollowingintheINCfootsteps. Principle8:Investinglocalcapital Afinal,bottomlinedistinctionbetweendecliningandthrivingruralcommunitiesisif, andhow,theyinvestinthemselves.Itsplaingoodjudgmenttomakesuchan investment,yetmanyruralcommunitieslooktooutsidefundersandassistance providerswithoutfirstcommittingtheirownresources.Regionsthatinvestin themselvesleverageadditionalcapital,beitmonetary,physicalorinkind. Communityendowmentsarepowerfulvehiclesforcapturingandinvestinglocal capital,especiallyinruralregionsexperiencingsignificantintergenerationaltransferof wealth.In2001,theNebraskaCommunityFoundation(NCF)completedanalysesof 32

boththemagnitudeandpeakoftheintergenerationaltransferofwealthforeachof Nebraskas93counties.Nebraska,especiallyruralNebraska,isalandrich,cashpoor economy,primarilydrivenbyproductionagriculture.Withagreatdealofruralpoverty (sevenveryruralNebraskacountiesrankedamongthe12poorestinthenationin2001), anagingpopulation,andseveraldecadesofoutmigrationofyoungadults,building strategiesbasedoncommunityassetsbecamecriticallyimportant. BasedonthegroundbreakingworkbyHavens&Schervish(BostonCollege,1999),NCF estimatesthat$94billionwilltransferinthenext50yearsinruralNebraska(750,000 citizens).Moreimportantthanthesevastsumsisthetiming,with86of93Nebraska countiesexperiencingtheirpeaktransferonorbefore2039;26veryruralcountieswill peakonorbefore2014.Bycomparison,thepeaktransferfortheUnitedStateswillnot occuruntilsometimeafter2050,ifever. Usingthisanalysisasacalltoaction,NCFissettingupaffiliatedcommunityfunds acrossthestateandhelpingthosefundstobuildendowments.Intotal,74community affiliatedfundsnowhavemorethan$26.4millionofcombinedendowmentand expectancies,morethantriplethecombinedtotalofthreeyearsago.63Also,Nebraska recentlyinstitutedataxcreditforgiftstoendowments. Giventheintensecompetitionforgovernmentandfoundationdollars,onlyself investingcommunitieswillmeritadditionalsupportintheyearsahead.The investmentsmaybemodest,perhapsnonfinancial,buttheydemonstratethe communitysorregionsdedicationtochange.Thus,ruralregionscanevolveinto vibrantplaces.

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PartII LessonsLearnedthroughtheCommunityClusteringInitiative PartIIdescribestheCommunityClusteringInitiative(CCI),RUPRIsexperimentin operationalizingtheprinciplesofeffectivegovernanceinthreerural,multicommunityregions oftheNorthwest.ItexplainstheCCIspurpose,workinghypothesis,projectdesignand methodology,outcomesonthegroundandthepictureofruralpovertyasseenbytheCCIslocal electedofficials.Mostimportant,PartIIpresentsthelessonslearnedabouteffectivegovernance throughtheexperiencesofthreeruralregions. Foraperiodofoneyear(May2005throughApril2006),theRUPRIRuralGovernance Initiativedirectedaprojecttoassesstheprinciplesofeffectivegovernanceinthree multicommunityregionsoftheruralnorthwest.Theproject,titledtheCommunity ClusteringInitiative(CCI),wassupportedbytheNorthwestAreaFoundation,a foundationcommittedtohelpingcommunitiesreducepovertyforthelongterm.The Foundationmakesprogramrelatedinvestmentandmissionrelatedinvestmentsin rural,urban,AmericanIndianandruralLatinocommunitiesinMinnesota,Iowa,North Dakota,SouthDakota,Montana,Idaho,WashingtonandOregon. TheCommunityClusteringInitiativetestedtheideathatimprovedsocialandeconomic outcomesaremostlikelytooccurinruralregionswhenthefollowingconditionsexist: Electedofficials,localbusinessleadersandemergingcivicleadersofnearby communitiesclustertogether,withintermediarysupport(coaching),to understandandactonimportantinformationabouttheirregion.Themixoflocal government,businessandcivicleadersbreaksthroughinstitutionalfaultlines (albeit,slowly)andcapitalizesontheskillsandresourceseachsectorand jurisdictionbringstothetable. Youthareactive,empoweredparticipantsintheprocess.RuralAmericalaments theexodusofyouth,yetfewcommunitiesgenuinelyengageyoungpeoplein communitydecisionmaking.Whenyouthandothernewvoices(e.g.,Native Americans)arewelcomedintothegovernanceprocess,thingshappen.Newideas comeforwardandnewstrategiesemerge. TheCCItestedtheseconceptswhileadvancingtwooutcomesofgreatinteresttothe NorthwestAreaFoundation: thatruralelectedofficialsputcitizenengagementandpovertyreductionhigher ontheirlistofpriorities;and

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thatruralcommunitiesseethemselveswithinaneconomicandculturalregion andpursuepovertyreductionstrategiesonaregionalbasis.

TheInitiativessuppositionabouthowtoimprovesocialandeconomicoutcomes coupledwiththeFoundationspovertyfocusledtoacentralquestion:howcanrural electedofficialsbeinfluencedtobecomemoreknowledgeableabouttheirwider economicregion,moreinvestedincitizenengagementandmorecommittedto eliminatingpoverty?Whatactivitiesorexperiencespressruralofficialsinthesenew directions? Basedonearlierwork,theRuralGovernanceInitiativejudgedthatruralleaderswere unlikelytoshifttheirthinkingandactioninresponsetoanarticleorworkshop,no matterhowinformativeorpersuasiveitmightbe.Lastingtransformationamongrural officialswasmorelikelytooccurwhenofficialsworkedonatangiblepovertyrelatedissueon theirhometurf,butacrosspoliticalboundaries,sectorsandgenerations. Mostelectedleadersstrivetobettertheeconomicconditionsoftheirresident individualsandfamilies.Theyunderstandthevalueofgoodpayingjobsandaccessto affordablehousingandhealthcare.Localofficialsalsotrytobecomemore knowledgeableandexperiencedlocalgovernmentleaders.Butelectedofficialsoperate underincreasingtimeandresourceconstraints. Thatswhylastingchangeamongruralleadersismostlikelytocomeaboutnotthrough readingorlistening,butthroughonthegroundexperimentationsituationsinwhich localofficialshavetheopportunitytomakefreshdiscoveriesabouttheirregion,builddeeper relationshipswithadiversecitizenryandcreatenewconnectionstoarearesources. ProjectDesignandMethodology ThefirststepinlaunchingtheCCIwassolicitingcommentsontheprojectdesignfrom theNorthwestAreaFoundationandrespectedcolleaguesinthefieldsofrural development,communitycapacitybuildingandyouthengagement.These consultationsrefinedtheprojectmethodologyanddirectedstafftopotentialmulti communityregionsandregionalintermediariesinthenorthwestregion. RolesandResponsibilitiesofClusters,IntermediariesandCCIStaff Potentialmulticommunityregionsweregroupsofruralcommunitiesthatsharedan economicandculturalregionandwerecommittedtostrengtheningruralgovernance, buthadlittleexperienceincollaborationonpovertyreduction.Toparticipateinthe CCI,atleastsomeofthecommunitieswithintheregionmusthaveparticipatedina 35

leadershipdevelopmentorcommunityvisioningprogramduringthepastfewyears (e.g.,LeadershipPlenty,HometownCompetitiveness).Selectedmulticommunity regionsformedacommunityclusterrepresentativeofthecommunitiesethnicand economicdiversityandcomprisedofelectedofficials,localbusinessleaders,emerging civicleadersandhighschoolyouth. Regionalintermediarieswerewellnetworkedorganizationsthatcouldserveascoach, facilitatorand/orexpertresourceprovidertothecluster.Potentialintermediaries includednonprofitdevelopmentorganizations,USDACooperativeExtensionoffices, communitycolleges,communityfoundations,regionaldevelopmentdistrictsorother organizationsinthenorthwestregion. Theprojectdesignoutlinedkeyrolesandresponsibilitiesofthemulticommunity clusters,regionalintermediariesandCCIstaff.Eachmulticommunityclusterwas requiredto: Sustainadiverseclustermembershipthatwouldworktogetheroverthecourse ofoneyeartoanalyzetheirregionaleconomyanddevisepovertyreduction strategies. Activelysolicitinvolvementfromtheregionselectedofficials,localbusiness leaders,emergingcivicleadersandhighschoolyouthandincorporateyouthas active,empoweredparticipants. Meetasaclustersixormoretimesoverthecourseoftheproject,beginningwith alocalorganizingsession. Collaboratewitharegionalintermediaryorganizationthatisgroundedand respectedintheregionandcanfurthertheclusterswork. Designatealocalindividualwithcredibilityacrosstheregionslocal government,businessandcivicsectorswhowouldserveasaclusterencourager. Theclusterencouragerwouldberesponsibleforcoordinatingtheclusterswork incollaborationwiththeregionalintermediary.Thispersonalsowould participateinmonthlyCCIledlearningsessions(viaconferencecall)and regularlyreportprogresstoCCIstaff. ParticipateinatleastthreelearningretreatsfacilitatedbyCCIstaffand conductedelectronicallyusingonlineconferencingsoftware.Eachclusterwould receivetherequiredWebcamerasandmicrophones. Eachregionalintermediaryhadtoagreeto: Serveasacoach,facilitatorand/orexpertresourceprovidertoacluster;assistthe clusterencouragerashe/sherequested;andbeonsiteforatleasthalfofthe clustermeetings.

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ReceiveandmanageasmallresourcefundtocoverstafftimeoftheCluster EncouragerandRegionalIntermediary(asfundspermit)andtheclustersdirect expenses(e.g.,travelwithintheregion,roomrental,refreshments,printing). ParticipateinmonthlyCCIledlearningsessionswiththeclusterencouragerand contributetotheonlinelearningretreatsfacilitatedbyCCIstaff. RegularlyreportprogresstoCCIstaff.

Inreturn,theCCIstaffactedasnationalintermediaryandcommittedto: Serveasanadvisorandresourcetocommunityclustersandintermediariesand coordinaterelationshipsbetweenthem. Planandfacilitatemonthlylearningsessionswithclustercomanagers(via conferencecall)andatleastthreeonlinelearningretreats. Identifyanddistributetargetedresourcematerialsofusetoparticularregionsor relatedtospecificpovertyreductionissues. Designandimplementsystemsforobserving,evaluatinganddrawinglessons fromtheproject. Prepareapublicationthatreportstheselessonstopolicymakers(local,stateand federal),programdirectors(publicandnonprofit),funders(governmentand foundations)andintermediaryorganizations. SelectionofMultiCommunityClustersandRegionalIntermediaries TheCCIselectedthefollowingclustersandintermediariesbasedontheircommitment tostrengthengovernanceintheirregionandtoworktogetheroverthecourseofone yeartoanalyzetheirregionaleconomyanddevisepovertyreductionstrategies. (Descriptionsandmapsofthethreeclusterregionsappearlaterinthisreport.) CoosCounty,OregonAclusterorganizedaroundthetrifurcationamongthe countysurbannorthernregion(CoosBay,NorthBend),itsrural, unincorporatedandlargelystrugglingcentralsouthernsection(Powers, CoquilleandMyrtlePoint)andanewgolfresortcommunityinthesouthwestern corner(Bandon).ThecountyishometotwoIndiantribes:theConfederated TribesofCoos,LowerUmpquaandSiuslawIndiansandtheCoquilleIndian Tribe. LakeFrancisCaseRegion,SouthDakotaAclusterstraddlingthreecounties (Lyman,BruleandBuffalo)andthesouthcentralbranchoftheMissouriRiver. MembercommunitiesincludedChamberlain,Oacoma,Reliance,Kimballandthe LowerBrule(SiouxTribe)ReservationCommunity.TheCrowCreekSiouxTribe alsoislocatedintheregion.Childrenacrosstheregionareeducatedatschoolsin ChamberlainorOacoma. 37

 JeffersonCounty,WashingtonAclusterfocusedaroundthetensionbetweenthe northcountysattractionofexurbanretirees(PortTownsend)andthesouth countysretentionofpeopletiedtopoorer,naturalresourcebasedandpartially tribalcommunities(JamestownSKlallamTribe).

Theclusterencouragerswereassociatedwithorganizationsbasedintheregion: ShoreBankEnterprisePacificinCoosCounty,OR;LakeFrancisCaseDevelopment CorporationinChamberlainOacoma,SD;andJeffersonCountyEducationFoundation inJeffersonCounty,WA. Theregionalintermediarieswerestaffoftwononprofitcommunitydevelopment assistanceorganizations:RuralDevelopmentInitiatives,Inc.inOregon,andSouth DakotaRuralEnterprise,Inc.inSouthDakota.Thethirdintermediarywasstaffofa governmentalagency:JeffersonCountyExtensioninWashington. AdaptationstoProjectDesign Theoriginalprojectdesignhadmembersofeachclusterworkingtogetheroverthe courseofoneyeartoanalyzetheirregionaleconomyanddevisepovertyreduction strategies.Thisdesignwasmodifiedinthreeways.Thefirstadaptationreducedthe clusterworkperiodfrom12to10monthsforanumberoflogisticalandbudgetary reasons.Thismodificationledtothesecondadaptation:shiftingfromananalysisofthe regionaleconomytoaninformeddialogueabouttheregionssocialandeconomic conditions.Hadtimeandprojectfinancesallowed,theCCIwouldhaveretainedamore formalcommunityeconomicanalysisprocess.Butdoingsowouldhavefurtherreduced theworkperiodbyseveralmonths.(SeeLessonsfortheFieldforanexplanationofthe valueofcommunityeconomicanalysis.) Thethirdmodificationwasputforwardbytheclusterencouragersandregional intermediariesthemselves.Veryearlyintheproject,theytalkedabouttheir communitiesexhaustionwiththewordpoverty.Allsharedacommitmenttoreduce thepovertypresentintheircommunities.Buttheyfirmlybelievedthatthepoverty wordwasgettinginthewayofpositivethinkingandactionintheirregion.Inplaceof reducingpovertytheysuggestedexpandingprosperity,amoreassetbased framework.Furthermore,theclustercomanagersdeemedthatafocusonprosperity ratherthanpovertywouldallowthemtomaketangibleprogressinthelimitedproject timeperiod. Withtheseadjustmentsinplace,andwithguidancefromCCIstaff,thecluster encouragersandregionalintermediariesledaninformeddiscussionabouttheir 38

regionssocialandeconomicconditions.Thedialoguecenteredonbarriersto expandingprosperityforall.Overthecourseofseveralclustermeetings,thediscussion translatedintoaspecificprojectthatwouldinwhateversmallwayhelptomovethe regiontowardsdecreasedpovertyandgreaterprosperity. Itwasessentialthattheprosperityrelatedprojectbesufficientlyrealistic,concreteand abletobeaccomplishedovera10monthperiod.Onceclustermembersagreedona project,thefollowingquestionsguidedtheirwork: Whatarethekeyassumptionsgoingintotheproject?Howwilltheproject work?(Moredetailedthinkingpermitstheplannerstodeterminewhoneedsto beinvolvedandtobuildinthefeedbackloopstotelliftheprojectactuallyis working.) Whatisthehistoryofrelatedeffortsintheregion?Whowouldknow? Whatiscurrentlyhappeningonthegroundrelatedtothisareaofconcern? (Includeplanningactivitiesthatmaybeunderway).Whowouldknow? Arethereanyothermodelsfortheproject?Whatinformationaboutthesemodels wouldhelpintheprojectdevelopmentandimplementation?Howcanthese modelsbetracked? Whatarereasonableprogressindicatorsthatcouldexpectedtobeobserved withintheprojecttimeperiodthatwillindicatewhetherornottheinitiativeis movingtowardtheanticipatedoutcomes? LearningRetreats Clustermembersandtheirregionalintermediariesparticipatedinthreeonlinelearning retreatsledbyCCIstaff.Thelearningsessionslastedthreehoursandwerespread acrosstheprojectperiod:September2005,November2005andFebruary2006.As describedbelow,theretreatswereconductedusingonlineconferencesoftware,Web camerasandothertechnology.Thesetoolsallowedretreatparticipantstoseeandhear expertpresentersandfellowCCIparticipantswithoutleavingtheirhometurf.This arrangementsavedprecioustimeandresources. Thespecificcontentandformatoftheretreatswerebasedonongoinginputfrom clusterparticipantsandtheircomanagers,anintentionalaspectoftheprojectdesign. Eachretreathadanoverarchingthemeandallincorporatedtimeforsharingproject updates,challengesandlessonsacrossthethreesites.Theretreatagenda,PowerPoint presentationsandothermaterialswereprintedanddistributedtoparticipantsatthe beginningofeachsessiontoallownotetaking.

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Thefollowingindividualsdeliveredmaterialsandfacilitatedportionsoftheonline retreatseitheronsite(inOregon,SouthDakotaorWashington)orfromtheirhomeor officelocations: LutherSnow,Consultant,AssetbasedCommunityDevelopmentInstitute HartleyHobson,VicePresident,InnovationCenterforCommunityandYouth Development KathyMoxon,AssociateDirector,HumboldtAreaFoundation BrianDabson,RUPRIAssociateDirector NancyStark,Director,RUPRIRuralGovernanceInitiative KarlaMilleroftheNorthwestAreaFoundationalsotraveledtoOregontoparticipatein thesecondretreat. UseofTechnologytoShareResourcesandLearning Theprojectdesignincorporatedtechnologyasanaffordablevehicleforsharing resourcesandpromotingpeerlearningamongthreegeographicallydispersedrural regions.TheCCIemployedMacromediaBreeze,anAdobeonlineconferencingproduct. BreezeoperatesthroughFlashPlayer,softwareroutinelyinstalledon98percentof computerbrowsers.Organizationsandcompaniesincreasinglyareusingmultimedia communicationssoftwaretoconducttraining,marketing,salesandwebconferencing acrossdistances. TheCCIhadfreeaccesstothesoftwarethroughapartnershipwiththeWesternRural DevelopmentCenterbasedattheUtahStateUniversity(USU).(USUholdsaBreeze licenseandmakesthetoolavailabletoeligibleuniversityprograms.)TheCenters InformationTechnologyAdministratorservedastechnicalmanagerofthethreeonline retreatsandprovidedinvaluablesupport.Foranominalcost,thethreeclustersitesand eachretreatpresenter(ifpresentingfromaremotelocation)receivedWebcamerasand tabletoporheadsetmicrophones.EachclustersitealsoemployedaLCDprojectorto projectthelaptopimageontoalargeviewingscreenandcomputerspeakerstoincrease audibilityacrossthemeetingroom.Thesetoolsallowedspeakerstodeliveravarietyof contentviaPowerPointpresentation.Asdiscussedlaterinthereport,thistechnology provedtobebothfascinatingandfrustrating. EvaluationSystems TheCCIdesignedandemployedanumberofsystemsfortrackingprogressand drawinglessonsforthefield.CCIstafffulfilledthefollowingresponsibilities: Contractedwithanevaluationconsultant,ShannaRatnerofYellowWood Associates,whoadvisedthroughouttheprojectandoffersrecommendationsat theendofthisreport.RatneroriginatedtheYouGetWhatYouMeasureevaluation

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processwhichhasbeenusedbyfederalandstategovernmentandnonprofit organizationsthroughoutthecountry. Conductedabaselineassessmentofcurrentgovernancepractices.Atthefirst clustergathering,eachparticipantansweredaseriesofquestionsaboutthe regionsexperienceincollaboration,citizenengagementandleveragingregional resources. Requiredtheclusterencouragerandregionalintermediarytoprepareandrevise ascopeofworkdescribingtheclustersprosperityrelatedprojectandafinal reportdocumentingoutcomesachieved,lessonslearned,etc. Evaluatedthethreeonlinelearningretreatsthroughaparticipantevaluation processandapostretreatconferencecallwithclustercomanagers(three encouragersandthreeintermediaries). Madesitevisitstoallthreeregions.CCIstaffpresentedatclustermeetingsand conductedfocusgroupdiscussionswithlocalelectedofficials.Inoneregion (JeffersonCounty),discussionswithelectedleadershadtobeconductedvia conferencecall. Recordedevidenceofprogress,challengesandlessonsduringmonthly(ormore) threewayconferencecallswitheachclusterteam(clusterencouragerand regionalintermediary). Ledmonthlylearningsessions(viaconferencecall)withthesixclusterco managers.CCIstaffusedthesesessionstoshareresourcespertinenttothe clustersworkandbringinexpertpresenters. Consultedwithexpertsinthefieldofworkforcepreparedness,entrepreneurship, youthengagementandotherareas;sharedguidancewithclustercomanagers. DeliveredpresentationsontheInitiativeatthefollowingmeetingsand conferences:MaineRuralSummit;NationalPublicPolicyEducationCommittee Conference;NorthCarolinaRuralEconomicDevelopmentCenterConference, NationalConferenceofStateLegislatorsRuralPolicyAcademyandWashington StateBasicEconomicDevelopmentCourse.

WhatPovertyLooksLikeinClusterRegions Thissectiondiscussesthenatureofruralpoverty,illustratespovertyintheeyesofthe CCIslocalelectedofficialsandprovidesdescriptionsandmapsofthethreecluster regions. TheNatureofRuralPoverty Povertyratesarehigherandmorepersistentinnonmetropolitanthaninmetropolitan areas.Alongacontinuumofthemosturbancountytothemostruralcounty,poverty ratesarehighestinthemostremoteruralareas.Highpovertyandpersistentpoverty countiesaredisproportionatelyrural.Ofthe386persistentpovertycountiesdefinedby 41

theEconomicResearchService,USDA,88percentareruralcounties.Povertyratesvary byregion,withthehighestratesintheSouthfollowedbytheWest;thelowestratesare intheMidwestandNortheast. Manyfactorscontributetothe Poverty Rates by Region, 2004 highlevelsandpersistenceof povertyinruralareas.While 16.0 14.1 12.7 12.6 theruralpoorarelikelytobe 14.0 11.6 11.6 working,theyaremorelikely 12.0 thantheirurbancounterparts 10.0 tobeinlowwagejobs.Thus, 8.0 povertyishigheramong 6.0 workingfamiliesinruralareas 4.0 thaninurbanareas.Wagesare 2.0 lowerinruralareasandthe 0.0 All Regions Northeast Midwest South West abilitytoearnenoughfora Source: U.S. Bureau of the Census, Current Population Survey familytoliveabovethe povertylineisharder.Economicopportunitiesinruralareascreateabarriertoexiting poverty,particularlyinruralareasdependentonnaturalresourceextraction,oftenthe onlyorthemajorindustry.Intheseinstances,theruralareabecomesveryvulnerableto economiccyclesinthatindustry. Povertyratesareparticularlyhighamongfemaleheadedfamilies;povertyratesamong thesefamiliesinnonmetroareasexceedthoseofmetroareas,withoveronethirdof peopleinnonmetrofemaleheadedhouseholdsmeetingthedefinitionofpoor. Povertycertainlyisanurbanproblemaswellasaruralproblem.However,manyof thefactorsthataffectpovertyaredifferentbetweenruralandurbanareas,suggesting thatthereisnoonesizefitsallapproachtoaddressingpoverty.Strategiestoimprove theeconomicconditionsoftheruralpoormustfocusonspecificsituationsand characteristics. Withthisunderstandingofruralpoverty,RUPRIaskedtheCCIselectedofficialsto describewhatpovertylookslikeintheirregions.Theypaintedthefollowingpicture: Inmanyfamilies,bothparentsareworking,ofteninmultiplejobs,andstillare strugglingtocoverhousingcostsandbasiclivingexpenses.Peoplecantget ahead;theyareoneortwopaychecksawayfromhomelessness.

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Kidsaredroppingoutofschoolinlargenumbers.Kidsaretakingcareofkids.In somecommunities,literacyratesaresolowthattheArmyrejectswouldbe recruits. LimitednumbersofpeoplereceiveTemporaryAssistanceforNeedyFamilies (TANF)cashgrants,buthugenumbersofworkingpoorpeopleparticipateinthe foodstampprogram,energyassistance,housingassistance,etc. Familiesarelivinginsubstandardhousingandbunkingup,withseveral familiesinonehome.Disabledpeople,especiallyseniors,aretrappedin inaccessiblehousing. Regrettably,manyleadersinlocalgovernment,economicdevelopmentand workforcearenasthinkthatpovertyisntabigissue.Theytalkaboutpeoplewho dontwanttoworkandwhoabusethesystem.Theseleadersdontrealizethat thosepeopleareworkingpeople.Theydontappreciatetheunbelievable challengespeoplefaceinmovingoutofpovertyandhowtoughitistoadvance economically.Otherleadersrecognizethatlocalpovertyexists,butassumethat thestatewilltakecareofit.

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DescriptionsandMapsofClusterRegions Historically,thefisheriesandforestryindustriesmadeuptheeconomyofCoosCounty (pop.62,779across1,600squaremiles).Forthepast20years,steadydeclinesinthese industrieshaveresultedinincreasedpovertyandlimitedopportunitiesforyouthand youngadults.Thecountyalsohasexperiencedaconsiderableinmigrationofolder residents.Whilebenefitingtheeconomy,thisinfluxhasspikedhousingcosts,putting increasedpressureonlowandmoderateincomefamilies.

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TheLakeFrancisCaseRegionoccupiesmuchofruralBruleandLymanCounties(pop. 9,259across2,450miles)andaportionofBuffaloCounty.TheUSDAEconomic ResearchServiceclassifiesBruleandLymanasfarmdependentcountieseither15 percentormoreofaverageannualearningswerederivedfromfarmingduring1998 2000or15percentormoreof employedresidentsworkedin farmoccupationsin2000.Farm dependencyimposeseconomic stressontheoverallregion.Lyman Countyalsoisclassifiedasanon metrorecreationalcountyand hometoCedarShore,aresortand conferencecenterspawnedby localleaders.LikeJeffersonand CoosCounties,theLakeFrancis CaseRegionhasexperienced majoryouthoutmigration.

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RemoteJeffersonCounty(pop.25,953across1,808squaremiles)hasbeenhithardbythe 19801990naturalresourceandeconomictransitions.Salmonfisheries,oncethe backboneoflocalyouthlabor,arenowlistedonthefederalESAlists.Timber,theking onthepeninsulafordecades,changedundertheFederalForestPlan,causinglocal harveststodropfrom440million boardfeettolessthan30million boardfeet.Thedropresultedin dramaticunemployment, economicrelocationand polarizationamongthecountys ruralcommunities.Today,with someoftheoldestmedian landownersinthestate,Jefferson Countyisfacedwithanexportof itsyouth,fallingnumbersinthe schoolsandalossoffarmlandas newwealthyresidentsdevelop formerresourcebasedlands.

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OutcomesontheGround Whilethereismuchworkyettobedone,thethreeCCIsitesachievedmanyresultsover aperiodofjust10months. CoosCounty,Oregon TheCoosCountyClusterfocusedonthelackofalternative,technicaleducational programsforyouthandyoungadults,especiallythoseatrisk.Thelackoftechnical programsonthesecondarylevelmakesitdifficultforsomeyouthtoobtainahigh schooldiplomaaprerequisiteforsuccessinthe21stcenturyjobmarketandturn theirinterestsintomarketableskills.Theclustercommittedtointerviewregional resourceproviders(includingcommunitycollege),assessgapsinservices,identify modelprogramsfromoutsidetheregionandcreateaplanofaction. ThroughtheCCI,theCoosCountcluster: Engagedawiderrangeofcommunitymembersincommunitydecisionmaking, includingtribalmembers,youthandindividualsfromruralareasoutsidethe urbancenterofCoosBay/NorthBend. Facilitatedmentoringbetweenlongstandingandnewelectedofficialsand betweencommunityleadersandlocalyouth. Broughttheissueofprofessionaltechnicaleducation(PTE)foryouthto prominenceamonglocalelectedofficials,communityleadersandsocialservice providers.Specifically,theprojecthelpedlocalleaderstoseethelinkbetween thelackofalternativejobskilltrainingatlocaleducationalinstitutionsandthe presenceofpoverty. MergedtheclustersPTEresearchintothePathwaysWorkforceCoalition,a groupoflocalemployers,workforceandeducationalprovidersfocusedon workforcepreparedness.Butfortheclustersefforts,electedofficialsandother communityleadersincludingyouthwouldnothaveconnectedwiththe coalition. Itsexcitingtoseeevidencethatengagingruralyouthhasarippleeffecton thecommunityasawhole.Weveseentheuniqueassetsthatyouthbringto communitiesintermsofbridgingdivides,changingcommunityculture(e.g. towardsmoreentrepreneurialthinking)andgeneratingmomentum.While thisprojectfocusedonengagingyouthinthelocaleconomy,thepresenceof youthincommunitydecisionmakingdoesmore;itgeneratesenergythat strengthensthecommunityforeveryone. KathiJaworski,ExecutiveDirector,RuralDevelopmentInitiatives,Eugene, OR 47

LakeFrancisCaseRegion,SouthDakota Inresponsetotheregionwideproblemofoutmigrationbyruralyouth,theLake FrancisCaseCluster(ChamberlainOacomaRegion)focusedonexpandingyouth programsandincreasingyouthengagementincommunitydecisionmaking.The regionslongtermgoalistocreatealearning/technologycenterthatcanprovideyouth andadultswithcontinuingeducationandemploymentfocusedtrainingclosetohome. ThroughtheCCI,theLakeFrancisCaseCluster: ExpandedcitizenengagementeffortsinitiatedthroughtheCommunityVision Coalition. Brainstormedandidentifiedseveralaffordable,shorttermprosperityrelated projectsofbenefittotheregion. Conductedresearchtoconfirmthelackofadequatecareer/technicaleducation andlifelonglearningprogramsforyouthandadultsintheLakeFrancisCase region. Developedaplantobringvocational/technicaleducationtotheregionthrough cooperativearrangementswiththeChamberlainSchoolDistrict,Kilian CommunityCollege,MitchellTechnicalInstitute,LowerBruleandCrowCreek SiouxTribes,LowerBruleCommunityCollegeandareaemployers. Draftedasurveytoqueryregionalworkersandemployersaboutcareer technicaleducationneedsandinterests;issuedaRequestforProposal(RFP)and evaluatedproposals;andselectedacontractorwhowillcarryoutthesurvey usingCCIfunds. Experimentedwithengagingmoreyouthinvolvedincommunitydecision makinganddeterminedthattheyoungadultpopulation(posthighschool)may bethebestgrouptotarget. Dad,thiswouldbeagreatplacetostayiftherecouldbeadecentjobsforme. Toobadtherewontbe.Son,thatswhywehavetochange. 12yearoldboyandhisfatheratthefirstLakeFrancisCaseClustergathering, SD Ourregionneedsclassesthatteachbasicbusinessskills.Istartedasuccessful onepersoncomputersupportbusinessandsoldittoatechnicallycompetent personwho,asitturnsout,didnthavethebusinesssensetokeepitgoing.The businessfaltered.Ifwehadbusinessclassesatthehighschoolandcommunity college,potentialentrepreneurswouldhaveaplacetoacquiretheseessential businessmanagementskills. KimHalverson,LymanCountyCommissioner,SD

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 JeffersonCounty,Washington TheJeffersonCountyClusterfocusedonbuildingabetterfuturefortheregions16to 35yearolds,especiallyyouthwhoarenotpresentlycollegedirected.Theregionhasno establishedsystemforconnectingemployerswithqualified,dependableyouth. Likewise,youthlackthenetworkingandmarketingskillstoarticulatetheirskillsto potentialemployers. ThroughtheCCI,theJeffersonCountyCluster: Elevatedthecommunityconversationabout16to35yearolds,evidencedbythe factthatyouthandyoungadultsarenowatoppriorityofthereconstituted countydevelopmentagency. Heldahugelyattendedruraleconomicsummitthatpropelledthecommunity fromavictimtoanassetbasedmindset.Thesummitbrokedownbarriers andinitiateddialogueamongtheregionslocalgovernment,school,business andworkforcesilos. Launchedanew,countywideeconomiclocalizationgroupthatwill collaborativelyaddresssouth,centralandnorthcountyissues. Createdanationallyrecognized4HWebsitethatexciteslocalyouthabout technologyandishometoyouthdirecteddigitalinterviews,portfoliosand more. Startedtoorganizeamentoringprograminwhichretireesespecially successful,formercitydwellerswillmentorlocalyouth. Inthepastitwasallaboutdeficits.Butthistime,wewerentjusttalkingabout theproblem.Wereworkingfromourstrengths. Participant,theJeffersonCountyRuralEconomicSummit,January2006 LessonsfortheField Didtheprinciplesofeffectivegovernancecollaboration,citizenengagementand leveragedregionalresourcespushlocalleaderstomakefreshdiscoveriesabouttheir region,builddeeperrelationshipswithadiversecitizenryandcreatenewconnections toarearesources?DidtheCCIcauseruralelectedofficialstobecomemore knowledgeableabouttheireconomicregion,moreinvestedincitizenengagementand morecommittedtopovertyreductionefforts? Broadlyspeaking,theanswerisyes.TheCCIsurfacedmuchevidencethatthe principlesofeffectivegovernancenudgedtheregionstowardsmorerobustcommunity 49

decisionmakingandexpandedeconomicprosperity.Butequallyimportant,the Initiativegeneratedadeeperandmorenuancedunderstandingofwhyandhowto furthercollaboration,citizenengagementandleveragedresourcesinchallengedrural communities. Thebalanceofthisreportexplorestheseandotherobservationsindetails.Lessons generatedthroughtheCCIareputintoaframeworkforusebypolicymakers(local, stateandfederal),programdirectors(publicandnonprofit),funders(governmentand foundations)andintermediaryorganizations.Theintentionistoinformanarrayof programmaticandfundingdecisions,includingtheallocationofscarceresources withinorganizations,contentofRFPs,choiceofselectioncriteria,complexionof advisoryboards,contentofpreapplicationworkshopsforpotentialgrantees,etc. However,thelessonslearnedthroughtheCCImaybeofequalinteresttocommunity practitioners. Lesson1:Shiftsinlocalgovernancedontjusthappen. Manylongstandingresidentsareveryvocalandresistanychange. ParticipantatfirstLakeFrancisCaseClustermeeting. Newcomersandlongtimeresidentsthatsapoliticallycorrectexpressionofthe havesandhavenots. ParticipantatfirstJeffersonCountyClustermeeting. Collaborationacrosssectorsandpoliticalboundariesissimpletodeclare,buttoughto effect,evenwithinasinglecounty.Citizenengagementisaslow,trustbuildingprocess thatdoesntcomeaboutthroughconventionalmeetings.Concernforruralyouthisa potentrallyingstrategy,butfewadultsknowhowtopartnereffectivelywithyouthon communitywork.Regionalintermediariesofferpreciousresources,buttheysometimes dodamagebysteppingintooquicklyortooforcefully.Also,assetbasedthinking wieldstremendouspowerfordiscouragedcommunities,butitmustbeinformedbya solidunderstandingoftheregionseconomy. ThefirstandmostfundamentallessongeneratedbytheCCIisthatshiftsinlocal governancedontjusthappen.Collaboration,citizenengagementandleveraged regionalresourcesarefundamentaltoaregionssocialandeconomicfuture.But,unless fundersandpolicymakerstakedeliberatestepstobuildtheseprinciplesintoprogram andfundingcriteria,mostruralregionswillcontinuetomakedecisionsastheyalways havewiththemoreurban,affluentportionofanotherwiseruralcountydominating theagenda;withfewminority,lowincomeandyoungvoicesatthetable;andwith 50

limitedunderstandingoftheregionsuniquesocialandeconomicconditions.Thenext eightlessonsfollowfromthisfoundationalconclusion. Lesson2:Concernforruralyouthcanleverageattentiononpovertyreduction. Allthreeclustersdrewanimmediateconnectionbetweenconcernforrural youth/youngadultsandpovertyreduction.Withnooutsideprodding,discussions aboutreducingpovertyandexpandingprosperityquicklyzeroedinonthelackof economicopportunitiesforruralyouth,especiallyyouthwhoarenotcurrentlycollege directedandvulnerabletosubstanceabuse(e.g.,methamphetamine). Theclustersunderscoredcriticaldeficitssuchas:poorjobreadinessamongyoung adults;littleornoprofessionaltechnicaleducationand/orentrepreneurshiptrainingat thesecondaryandcommunitycollegelevels;fewparttimejobs;andnosystemfor funnelingjobstoeligibleyouth.Youthcomplainedaboutlocalemployersnottreating themwithrespectandbusinessesprotestedthatyouthdontwanttowork.Theseissues couldbepowerfullycoalescingforschools,workforcetrainingorganizationsand employers.Yet,atthestart,noneoftheclustersincorporatedrepresentativesofthe workforceinvestmentsectororcommunitycollegeandonlyoneincludedaschool representative. ThedecisiontofocusonlocalyouthiswellexplainedbyCoosCountyClusters RegionalIntermediary: Greatexpectationsdonotaboundformanyofthekidsinthiscounty.Ina regionthatsbeenhardhitbyachangingeconomyandcrippledforestryand fisheries,thereisnoclearpathtoprosperityformanyyoungadults.Kids,who 40yearsagowouldhavemovedfromadolescencetoawellpaying,lifetime vocation,havehadtothrowawaythemodelthatworkedsowellfortheir parents.Atthemoment,thatmeansacceptinglowpayingjobswithlittlefuture foradvancement. BobAult,CommunityDevelopmentAssociate,RuralDevelopment Initiatives,Eugene,OR Conversationsaboutruralyouthspurredconcreteaction.Oneclusterdraftedaplanfor establishingcooperativeagreementsamongtheschools(K12andcommunitycollege), Indiantribesandareaemployers.Anotherclustermergedthegroupsprofessional technicaleducationresearchwithamultisectorcoalitionfocusedonworkforce preparedness.Thethirdclusterconvincedthenewlyreengineeredcountyeconomic developmentorganizationtomakethefutureoflocalyouthoneofitspriorityconcerns. 51

 Theclustersfocusonlocalyouthreapedadditionalgains:itcutacrosstheregions politicalboundariesandsectorsanditservedasalevertobringdisparatepeopleand sectorstothetable.TheCCIexperiencedemonstratesthatbyputtingthespotlighton strugglinglocalyouth,regionsmayinciteincreasedcitizeninvolvementand,overtime, achievemoreprogressonpovertyreduction.Theimplicationforpolicymakers, programdirectorsandfundersistoincorporateandsupportactivities,policiesand structuresthatcapitalizeonconcernsaboutruralyouth.(Also,seeLesson6concerning youthengagement.) Lesson3:Ruralelectedofficialscan,andmanydo,playavitalroleinpovertyreduction. InMarch2006,theNorthwestAreaFoundation(NWAF)releasedthefindingsofa nationwidesurveyofthepublicsperceptionofpovertyintheircommunities.The surveyconcludedthatAmericansareacutelyawareofpeoplestrugglingtogetbyin theircommunities,yettheyareoptimisticaboutfutureprospects.Americansarewilling totakeactionpersonallyonthisissue. Communitiesacrossthecountryareworkingtogethertoreducepovertylongtermand theyregettingmeasurableresults.Locallyelectedofficialshaveanimportantroleto playinreducingthenumberofpeoplewhoarestrugglingtomakeendsmeet. RUPRIaskedtheInitiativeselectedofficialstoreflectontheNWAFsurveyresultsand identifytheroleslocalgovernmentleadersplayinpovertyreduction.Suchrolesare constrainedbylimitedlocalfinancingpower(e.g.,capsonbudgetincreases),declining stateandfederalresources(e.g.,HeadStart,infrastructurefinancing)andaneedto avoidregressivetaxincreases(e.g.,sales,propertytaxes)becausetheyimpose disproportionatefinancialburdensonlowerincomefamilies.However,electedleaders especiallycountyofficialspossessseveralpowersandresourcestoalleviatepoverty intheirregion.Electedofficialsofthethreeclustersoutlinedthefollowingrolesfor localgovernmentleaders: Manydecentjobsintheregionaregoingunfilled,largelybecausethe professionaltechnicaleducationrequiredforthepositionsisnotreadilyavailable inthearea.Largecompaniesarehavingparticulardifficultyhiringqualified workers.Employersneedtrainingprogramsfocusedondevelopingworkers softskillsinbasicmathandfinancialliteracy,personalhygiene,customercare, etc.Electedofficialscanaddressthisissuebyconveninglocalactorsingovernment, economicdevelopment,workforce,highschoolandcommunitycollegesand

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pushingforcollaborationamongtheirprograms.Allsectorsmustbeatthetableto tacklecomplexissuessuchasworkforceshortagesandthemismatchbetween communitycollegeofferingsandbusinessesworkerneeds. Mostofthejobsintheseregionsareinsmallbusinesses.Thatsgoodnews becausealocaleconomycomprisedofmultiplesmallbusinessesisamore resilienteconomy.Electedofficialscanstrengthentheregionssmallbusinesssectorby puttingapublicspotlightonbusinessretentionandentrepreneurship.Localleaders mustmaintainanatmospherethatsconduciveforbusinessdevelopmentandan agendathatsupportsexistingbusinessesandbuddingentrepreneurs,ratherthan importingbusinessesfromoutsidethearea. Localleaderscanstresstheimportanceoffocusingonyouthtobreakthe intergenerationalcycleofpovertyandtogrowthecommunityfortheneweconomy. Officialscantakealeadershiproleinexpandingandpromotingyouthactivities andincreasingyouthinvolvementincommunitydecisionmaking(e.g.,youthon governingboards).Governmentcanuseitsbullypulpittofosteryouth entrepreneurshiptraininginschoolandafterschoolprogramsandatthe communitycollege. Electedleaderscanpilototherinitiativesthatprovideimmediaterelieftostruggling individualsandfamilies.Forexample,officialscanenrolltheircountyinthe NationalAssociationofCounties(NACO)DiscountPrescriptionProgram. Throughtheprogram,uninsuredparticipantsreceiveprescriptionsata50 percentdiscount.Officialscanestablishdropoffcenterswherecitizensdonate surplusfurniture,kitchensupplies,childrenstoysandschoolsupplies,etc.for needyfamilies. Peopleareoftenisolatedanddiscouraged.Localleaderscanplayavitalrolein gettingpeopletalkingtoeachotherandhostingfocuseddialogueswherecitizens thrashouthotbuttonissuessuchasunderagedrinking,themethamphetamine epidemic,etc.Peoplearetiredofmonthlymeetings,buttheywillshowupfor focusedconversationsonmattersofparticularconcerntothem.

Thesecommentswarnpolicymakers,programdirectorsandfunderstoneither exaggeratenordiscounttheprosperitydevelopmentpowersandresourcesavailedto localelectedleaders.Examplesofprogrammaticimplicationsare:puttinglocalofficials throughadeliberateprocessofidentifyingtheirrolesinpovertyreduction;supporting communitydialoguesaboutprosperitydevelopment;facilitatingcollaborations betweenlocalgovernmentandcivicorganizations;andallowingselectedfunding 53

decisionstobemadeonthelocallevel(e.g.,usinglotterydollarstosupport entrepreneurswhocreatefamilywagejobsassupportedinCoosCounty). Lesson4:Inordertoengageunderrepresentedindividuals,thereisnosubstitutefor havingsufficienttimeforoutreachandrelationshipbuilding. TheCCIexperiencebroughtnewvoicestothetableandahigherdegreeofinteractivity withintheclusterregions.ButtheInitiativealsodemonstratedtheintricacyofinvolving andsustainingunderrepresentedindividualsincommunitydecisionmaking.All clustersstruggledwiththisissue,especiallyaroundengagingNativeAmericansand youth(seeLesson5). AllthreeregionsarehometoIndiantribes.TheJamestownSKlallamTribecrossesinto JeffersonCounty,WA.TwotribesexistinCoosCounty,OR:theConfederatedTribesof Coos,LowerUmpquaandSiuslawIndiansandtheCoquilleIndianTribe.Thegreater LakeFrancisCaseRegion,SDishometotheLowerBruleSiouxTribeandtheCrow CreekSiouxTribe.Also,theSt.JosephIndianSchool(boardingschoolforLakota students)islocatedinChamberlain.OtherthantheNativeAmericanpopulation,the clusterregionsarepredominantlywhite. Allresearchandpracticearoundengagingunderrepresentedindividualsconfirmthat theprocesscantberushed,especiallywhencrossingoverintoothercultures.Soitsnot surprisingthatCCIsshorttimeframemadeittremendouslytaxingtoseekand maintainmembersoftheNativeAmericancommunity.TheCCIbroughtina consultantwhorecommendedspecificengagementstrategiessuchas: Requestinganaudiencewiththelocaltribalcouncil(s). MakingaclearconnectionbetweenthecouncilsinterestsandtheCCIproject. Withoutformalbuyinfromthetribalcouncil,aprojectinvolvingtribalmembers wonthavelastingeffect. Invitingtwotribalmemberstoparticipateintheeffort,notone.Themembers mustbeempoweredbythetribalcounciltorepresenttheIndiancommunityand mobilizeitsmembers. Askingiftheclustercanholdoneormoremeetingsatatriballocationmeeting site. DeterminingwhichradiostationshavethemostIndianlistenersandusinglocal talkshows,publicserviceannouncements,etc.toreachouttoNativeAmericans. Yet,becausetherewasntenoughtimetofullyimplementthestrategiesandachieve results,mostclusterssustainednomorethanonetribalrepresentative.TheLakeFrancis Caseclusterwasanexception;itincorporatedateamofmiddleschoolstudentsfrom 54

theSt.JosephIndianSchool.Thestudentsspokeuponlyrarely,however,probably becausetheyfeltintimidatedbytheadultsandolder(nonIndian)students. Bringingemergingleaderstothetablealsowaschallenging.Oneclusterswitched encouragersbecausetheoriginalperson,aninexperiencedbutbuddingleader,decided thatrolewastoomuchforher.Anotherclusterhadaveryactivecountycommissioner whoinitiallyoverloadedthegroupwithelectedofficials.AlthoughtheCCIrequireda diversemixoflocalgovernment,business,civicandyouthleaders,theinvitingwasleft uptotheclusterencouragerandregionalintermediary.Theseincidentsdemonstrate thechallengesofgrowingemergingleadersandsteppingoutsideofentrenched networks. Thethirdonlinelearningretreatunderscoredtheimportanceofhavingpatienttimefor outreachandrelationshipbuilding.InsharinglessonslearnedthroughRedwoodCoast RuralAction(seecasestudy),KathyMoxontalkedaboutthemanymonthsittookto bringtogetherdiverse,grassrootscivicleadersfromthefourruralcountiesofDel Norte,Humboldt,MendocinoandTrinity.Shestressedthevalueofconveningpeople together,awayfromanyoneshometurf,tobuildrelationshipsacrossdividinglines. TheexperiencesofCCIandRCRAcautionpolicymakers,programdirectorsand funderstogivecommunitiesenoughtimeandresourcestoeffectivelyreachunder representedindividuals.Thisneedtranslatesintoprogrammaticdecisionssuchas longertimeframesforassemblingcommunityteams,additionalresourcestosupport conveningamongdiversestakeholdersandamorereasonableexpectationabouthow muchdiverseengagementcanberealisticallyachievedinaprojecttimeperiod. Lesson5:Youthmustbeactiverespectedparticipantsincommunitydecisionmaking becausetheyarethefutureofruralregions.Unfortunately,mostadultsareclueless abouthowtopartnereffectivelywithyoungpeople. Ibelievethatlocalorganizationswanttoincludeyouth,buttheydontknow howtodoit. ParticipantatfirstLakeFrancisCaseClustermeeting. Weseekyouthinput,butthekidsdontalwaysparticipate. ParticipantatfirstJeffersonCountyClustermeeting. Engagingyouthincommunitydecisionmakingistoughwork.Adultshavelittle knowledgeandexperienceinhowtoinvolveyouthinameaningfulway.Adultssay thattheywantyouthinput,yetadultsfrequentlydrownoutordiscounttheyouth 55

voice.Addingtothedifficultyarethefactsthatmiddleandhighschoolagekidsare busywithschool,sports,jobsandsocialactivitiesandareboredbyconventionaladult gatherings. TheCCIacknowledgedthesechallengeswhileimpartingguidanceonhowtoreachout toyoungpeople.Atthesecondlearningretreat,HartleyHobsonoftheInnovation CenterforYouthandCommunityDevelopmentoutlinedthebenefitsanddifficultiesof increasedyouthinvolvementindecisionmaking.Shesharedcommunitystories, offeredtipsforsuccessfulyouthadultpartnerships,andexplainedhowmeetingscan involveyouthandadultsasequalpartners.Hobsonstressedthatbroadyouth engagementmeansinvolvingyoungpeoplefromallethnicandeconomicbackgrounds, notjustthevolunteeringstudentcounciltypes. Hobsonhadclustermembershuddleindiversegroupstobrainstormhowtousethese approachesintheirowncommunities.Inoneregion,theconversationsinspiredablunt declarationfromyouthadvisingadultsto:holdmeetingswhereyouthcongregate; providetransportation;givesufficientadvancednoticeviaemailandpostersinyouth gatheringplaces;letyouthplayaroleinsettingtheagendaandthepace;setupyouth councilssothatyoungpeoplecanlearnaboutissuesbeforetheyareaskedforyouth input;andnotexpectoneyoungpersontorepresentthecommunitysyouth. Overtime,theclusterwitnessedthatwhenyouthareactive,empoweredparticipantsin communitydecisionmaking,thingshappen.Broadyouthengagementincitesfresh conversationsandshiftspower.Noneoftheclustersengagedasmany(orasdiverse) youngpeopleastheyhadhoped,butallwereaffectedbytheiryouthmembers.Inone cluster,apassivekidfromanisolated,ruraltowngraduallysteppedintoaleadership position.Hisinterestindieselenginemechanicseducatedtheadultmembersabout alternativecareerpaths. Forpolicymakers,programdirectorsandfunders,theselessonsputforwardreasons andstrategiesforbuildingyouthintotheruralprosperityequation.Possibilitiesinclude programmaticdecisionsabout:designatingruralyouthasadisadvantagedgroup; incorporatingyouthadultpartnershipbuildingintothepreapplicationworkshop curricula;andrequiringthecompositionofprojectplanningcommitteestobeonethird youth. Lesson6:Assetbasedcommunitydevelopmentandtargetedcommunityeconomic analysiscan,together,transformaruralregion. Wereawareofoureconomichistory,butnotstuckthere. 56

Ibelievethatmostpeoplestillyearnforthepast. TwoparticipantswithdifferingperspectivesatthefirstCoosCountyCluster meeting. AssetbasedthinkingwasacenterpieceoftheCCI,startingwithapresentationatthe firstlearningretreat.Communityeconomicanalysiswasincorporatedintotheoriginal projectdesign,butlatermodifiedduetotimeandresourceconstraints.Theexperience ofembracingassetbasedthinkingbutomittingcommunityeconomicanalysis demonstratesthemagnitudeofthesecommunityprocesses.Italsosuggeststheadded valueofemployingassetbasedcommunitydevelopmentandcommunityeconomic analysisinasingleregion. ItwasatransformationalmomentwhenLutherSnow,oftheAssetBasedCommunity DevelopmentInstitute,introducedassetbasedthinkingattheSeptember2005retreat. Itssosimpleatfirstblush.Buttheactoffocusingonaregionsassetsratherthanits needsrevolutionizesacommunitysperspective.Oneregionwassostirredthatitused aportionofitsresourcefundtobringSnowacrossthecountrytofacilitatearural economicsummit.AccordingtoKatherineBarilofJeffersonCounty(WA)Extension, theexperiencechangedthestorythatpeopletellabouttheircommunity:Itmovedthe dialoguefromwhatstypicallyoutlinedinfundingapplications(needs,problemsand deficits)toassets;toqualitiesthatdemonstrateouropportunitiestochange. Communityeconomicanalysissupportssounddecisionmakingandchallengesthe mythsthatpeoplehaveabouttheircommunity(e.g.,thatagriculturestillsupportsthe localeconomy).Successfulprosperitydevelopmentisdependentonunderstandingand actingonaregionsuniqueeconomicandsocialconditions.IntheCCI,community economicanalysiswouldhavegivenclusterparticipantsacommonbasefromwhichto work;itwouldhavedeepenedtheirwork.Butcommunitydecisionsupporttoolslike communityeconomicanalysisonlyworkiftheyaretargetediftheyofferkeyfacts andconcisestatementsandcomparisonsabouttheregion,notmoundsofCensusdata. Practitionersskilledinassetbasedcommunitydevelopmentandtargetedcommunity economicanalysisseemtooperateinveryseparatearenas.Thisdichotomyis unfortunate.TheCCIexperiencesuggeststhatassetbaseddevelopmentisallthemore powerfulifitsinformedbytargetedeconomicanalysis.Likewise,economicanalysisis moreinspiringifitsenhancedbyassetbasedthinking.Theimplicationfor policymakers,programdirectorsandfundersistobuildthesecommunitydecision supporttoolsintoongoingprogramstofinanceopportunitiesforcommunityleaders tolearnandusethesetoolswithexperiencedpractitioners. 57

Lesson7:Ittakesdeliberateattentiontomaintainaregionalfocus. TheCCImovedtheclusterregionssignificantstepsforwardoncollaborationacross politicalboundaries.Attheonset,theclusterstalkedaboutpowerbeingconcentratedin themoreurban,wealthierportionoftheircountyorregionandindividual communitiescompetingtobeconsideredlessrural(meaningbetter).Meetings wereroutinelyheldintheurbanportion,anhourormoredrivefromthemorerural communities. ButastheCCIevolved,theclusterencouragersdrewinmoreresidentsfromthe outermostcommunities.Oneclusterheldaneconomicsummitinthemostremote, ruralsectionofthecounty.Anotherclusterdeliberatelychoseaveryrural,southcounty residenttobeitsClusterEncourager.Whileitoftenwashardtokeeparegionalfocus, thetopicofregionalcollaborationwasclearlyonthetable,considerableprogressin itself.Seeingthatfiercepoliticalboundariesoftenexistwithinasinglecountyindicates thatcollaborationmightmostproductivelybeginatthesubcounty(notsubstate)level andthengrowoutward. Lesson8:Onlineconferencingandothertechnologiesarepowerfultoolsforsharing learningacrossruraldistances.Buttheycreatethemostbenefitwhencoupledwith somefacetofaceinteraction. TheCCIemployedtechnologytodeliverprogramsupportandpromotelearning amongthreegeographicallydispersedruralregions.Theonlineretreatspresenteda rareopportunitytoacquirenewinformationandresourcesalongsideothersimilarly situatedruralcommunities.Withonlineconferencingsoftware,Webcameras,tabletop orheadsetmicrophones,LCDprojectors,etc.,clustermembersexpandedtheirhorizons withoutdrivingorflyingacrossvastdistances.Atnocost,theyestablishednew connectionswithfellowcountycommissioners,4Hleaders,mainstreetbusinessowners andschoolsuperintendents.Theyalsoestablishedimportantconnectionswithexpert resourceorganizationsbroughtinbyCCIstaffconnectionsthatcanbemaintained intothefuturethroughphoneandemailcommunication. Butconferencingvialaptops,camerasandmicrophonescanbetricky.TheBreeze softwarerequiredmorebandwidththansomeregionscouldmusteronaconstantbasis. Windandsnowstormssometimesinterruptedreception.Somemishapsprobably resultedfromstretchingthelimitsoftechnologybyconnectingmultipledevices together:laptops,digitalvideocameras,microphones,soundmixingboards,computer speakers,LCDprojectors,etc.Asoneregionalintermediarydeclared:Wewentboldly

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wherenootherruralcommunitieshadgonebefore.Nowonderwehadsome difficulties. Despitethemishaps,clustermemberswereexcitedbytheopportunitytoexperiment.It wasthrillingtoseeandchatwiththeothergroupsassembledaroundtheirconference tables.Inthewordsofaclustermembers,Tobeonthecuttingedgeforachange.For theteamsofclustercomanagers,theconferencecallsandonlineretreatsbuiltatrue learningcommunity.Thisdevelopmentwascuriousconsideringthattheclusterco managersnevermetinperson. TheCCIsexperimentwithtechnologyofferspolicymakers,programdirectorsand fundersatwoprongedrecommendation.First,considerexploitingtechnologyto disseminateinformationandsharelearningacrossruraldistances.Useconferencecalls andonlineconferencingtogivedetailsaboutanewprogram,entertainquestionsabout anRFPandhostdialoguesamongruralpractitioners.Second,recognizethattechnology isntasubstituteforfacetofaceinteraction.Givenadditionaltimeandresources,the Initiativewouldhavestartedandperhapsconcludedwithafacetofacegatheringof thethreeclusters(oratleastthesixclustercomanagers)andCCIstaff.For policymakers,programdirectorsandfunders,onlineconferencingsupplementedby limitedinpersonconveningcangeneratepowerfulresults. Lesson9:Alittlebitofmoneyisntnecessarilyalittlething. AdditionalfundingmighthavepermittedtheCCItoconveneclustermembers, undertakecommunityeconomicanalysisandhavesufficienttimetobuildstronger bridgestoyouthandtheNativeAmericancommunity.But,allinall,theCCIwasan impressivelearningexperienceforverylittlemoney.Thisprojectdemonstratesalesson aboutcapital:thatalittlegrantmoneyisntalittlething,especiallyifgranteesaregiven considerablelatitudeinhowthemoneyisspent. Theclusterswereenergizedbyreceivingfinancialsupport(howeversmall),having considerableflexibilityintheuseofprojectfundsandknowingthatanational organizationandamajorfunderbelievedinthem.Largesumsofmoneycreatetheir ownsetofproblems,especiallydisputesoverfundingdisbursements.Thislearningwas akeyoutcomeoftheUSDAEmpowermentZone/EnterpriseCommunities(EC) program.WhiletheEC(funded)communitieswerefightingoverdollars,theChampion communities(approvedbutnotfunded)puttheirstrategicplanintoaction.The recommendationforpolicymakers,programdirectorsandfundersistoconsiderthe benefitsofsmallbutflexiblegrantmaking.Alongsidemajorresourcecommitments, suchgrantscangivesmall,ruralcommunitiesamuchneededboost. 59

 [BoxorHighlighttodifferentiatethisfromthelessonssection?] RecommendationsforFundersandPolicymakers:howtospendyournextnickel RUPRIretainedShannaRatner,PrincipalofYellowWoodAssociates,asevaluation consultanttotheCommunityClusteringInitiative.YellowWoodisaVermontbased consultingfirmprovidinganarrayofservicesinruralcommunityeconomic development.AttheCCIsconclusion,RUPRIaskedRatnertoofferherownadviceto fundersandpolicymakers.ThefollowingrecommendationsareinformedbyYellow WoodAssociates20yearsofworkwithcitizensgroups,nonprofitorganizations, policymakers,fundersandentrepreneursseekingtocreatenewopportunitiesinrural Americawhileprotectingcorevalues. Themostimportantresourcefundersandpolicymakersbringtothetableisntmoney; itstherecognitionandcachetyoursupportlendstolocalefforts.Thatswhatmotivated peopletoparticipateinCCI.Ofcourse,moneymatterstoo.So,ifyouwantyournext nickeltosupporteffectiveruralgovernance,pleaseconsiderhowyouwillstructure yoursupportto: Buildrelationshipsamongdiverseruralpeopleandcommunities.Relationshipbuildingis keytoeffectivegovernance,yetopportunitiesforopendialoguearelimited. Policymakersandfunderscandosomethingaboutthischallenge.Engagelocal electedofficialswithotherindividualstoexpandtheirhorizons,networksand knowledge.Recognizethatrevitalizingdemocracydependsonestablishingcloser connectionsbetweenthegovernorsandthegoverned.Personalbridgescomebefore institutionalbridges,whetheramonglocalgovernments,acrosspoliticalboundaries oracrosssectors.Supportfacetofacemeetingswithinaregion,coupledwith broaderrelationshipbuildingamongpeoplefacingsimilarchallenges.Deploy inexpensivetechnologies(e.g.conferencecalls,onlineconferencing)tofeedthe hungerforconnectionamongruralleadersandpractitioners. Reframepovertyasprosperityandincludelocalelectedleadersinthework.Electedofficials haveimportantrolestoplaypovertyreduction,rolesthatarenotduplicatedatthe stateorfederallevels.Butelectedleaderstendtoavoidissueslikepovertybecause theyfeeloverwhelmingorintractable.Leadersrespondbettertobuilding prosperity,agoalthatresonateswithothersaswell.Helpelectedofficialsrecognize whattheycandoaboutpovertyandputitinpositiveterms.Focusingonbuilding prosperityismorepowerfulthanfocusingonreducingpoverty.Itsagoalthat transcendspoliticalandsectoralboundariesforthegreatergood. 60

Layerprogramassistancetomeetemergingneeds.TheCCIexperimentedwithlayersof supportthatmakesense.First,thecommunityencourager:alocalpersonwith networksandcredibilitytorecruit,organizeandcofacilitateagroupofpeople workingtowardasharedgoal,rightthere,ontheground,allthetime.Next,the regionalintermediary:anorganizationfamiliarwiththeregion,staffedbypeople whocouldcofacilitate,impartgroupprocessskills,providecontentexpertiseand managethemoneytocallonasneeded.Finally,theCCIstaff:anational intermediarycoachwithanoutsidersperspectivewhocanlinkindividualefforts withoneanother,identifykeyresources,enlargeexistingnetworks,manage conflictsandprovideasoundingboardforallparticipantsonanongoingbasis. Notetheimportanceofanobjectivesomeonecommittedtothesamegoalswho canbethereforencouragersandintermediariesonshortnoticewithoutaddingan unnecessarybureaucraticburden.Ataprogramsinception,itsimpossibleto prescribeaccuratelythesupportthatpeoplewillneed.Layeredsupportisnon duplicativeandeffectiveinmeetingemergingneedsonatimelybasis.Management andtechnicalassistancestaysclosetothegroundwhereitbelongsandlocaland regionalcapacityisenhancedthroughcoaching. Keeptablesopenandmovable.Ittakestimeforadiversegroupofpeopletoidentifythe issuetheywanttoaddress.Onlythenisitclearwhoneedstobeatthetable:those whocanmakeithappen,thosewhocanpreventitfromhappeningandthosewho willbeaffectedifithappens(ordoesnot).Expectgroupstoidentifystakeholders notonlyattheoutset,butalsoastheygoalong.Encouragesharedaccomplishments andgivecreditallaround,especiallyasthepeopleinvolvedchange.Helpgroups usegeographytotheirbenefittoengagenewvoices.Encouragethemtogotothe stakeholderstheywanttoinvolve.Considermovingmeetingstodifferentplaces; wheremeetingsareheldmatters.Meetinglocationaffectsthequantityandquality ofparticipationandtheperceptionofwhosimportantandwhoitsallabout. Supportsystemsthatengageyouthwithadultsandsurfacenewideas.Thepresenceof youthbringstherealityofthenextgenerationhome.Itchangestheequationand makesthingshappen.Createandfundeffortsthatusetheenergyandideasofyouth toorganizeaction.Supportprogramsthatteachadultshowtoproductivelywork withyouthandhowtolistenwhenyouthspeak.Recognizethatengagingwith youthmeansdoingworkdifferently.Itmeans:interactingmore,sittingless;having foodateverymeeting;actingliketimematters;anddoinghomeworkandsharingit sothateveryonehasthesameinformationfromthestart.Conventionalmeetingsare illdesignedforsurfacingnewideasandinvolvingnewpeople,especiallyyouth. Smallgroupdiscussionsandalternativedialogues(e.g.,WorldCaf)doamuch betterjob. 61

Recognizethepowerofcommunitycapacitybuilding.TheCCIcommunitieswere selected,inpart,becausetheyparticipatedinaleadershipdevelopmentor communityvisioningprogramduringthepastfewyears.Thefactthatallthree clusterswereabletoagreeonadirectionandtakeconcretestepstowardtheirgoal ina10monthperiodspeakstothecapacitythatalreadyhadbeendeveloped. Clustermembersthemselvescreditedleadershipdevelopmenteffortsforfortifying theregionslocalgovernmentandcivicleaders.Notallruralareashaveleadership developmentorcommunityvisioningprogramsinplace.Asfundersand policymakersrecognizethetremendousvalueofcapacitybuilding,theycanhelpto spreadcapacitybuildingprogramstoruralareasthatdontyethavethem. Supportresearchasanintegralpartofanimplementationstrategy.Researchisntjustfor planningpurposes.Onceagroupnamesitsgoal,thenextstepistolearnmoreabout it.AstheCCIclustersidentifiedgapsintechnicaleducationandentrepreneurship, theyneededtolearnmoreaboutwhatwasalreadygoingonintheirareaandwhat employersandyoungpeoplewanted.Answeringthesequestionsrequiredresearch. Aspeoplefindorcreatetheinformationrequiredtomakegooddecisions,theygain amoreaccurateunderstandingoftheissue.Theycomeacrosspeoplewhocare aboutthesameissueandwanttocontribute.Asunderstandingimproves,sodoes thepossibilityofsuccessfulactionswithmeaningfuloutcomes.Donotassumethat peoplealreadyhavetheinformationtheyneedtomakegooddecisions.Donotdrawaline inthefundingorpolicysandbetweenresearchandimplementation.Research particularlyparticipatoryactionresearchinformsimplementation,improves outcomesandbuildscapacityforrepeatedsuccess. Takethisexperimenttothenextlevel.Offermoreruralregionstheopportunityto participateinaCCItypeinitiativeandgivethemmoretime(notnecessarilymore money).Tenmonthsisntenoughtimetocementcollaborationacrosssectors, sustainedcitizenengagementandleveragedregionalresources.Thenextstepisto runthispromisingexperimentforatleastthreeyears.Itwontcostmuchandthe returncouldbeincrediblyrich.

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Conclusion Twoyearsago,theRUPRIRuralGovernanceInitiativesetouttoanswerafundamental governancequestion:whatistherelationshipbetweenhowcommunitydecisionsare madeandwithwhomandtheresultsthatareachievedinthelongterm?Tobegin,the RGIexplainedgovernanceastheprocessofmakingandcarryingoutdecisionsinthis case,criticaldecisionsthatdefinearuralcommunityssocialandeconomicfuture. Then,Initiativestaffdrewontheknowledgeandexperienceofruralresearchersand practitionerstocrafteightprinciplesofeffectiveruralgovernanceorganizedaroundthe threethemesofcollaboration,citizenengagementandleveragingregionalresources. Finally,theRGIledanexperimentinoperationalizingthesegovernanceprinciplesin threerural,multicommunityregionsofthenorthwest. Throughthispracticalresearchandonthegroundexperimentation,theRGIconfirmed thatthereisapositiverelationshipbetweenruralgovernancehowdecisionsaremade andwithwhomandcommunityoutcomes.Atleastintheshortterm,effective communitydecisionmakingthroughcollaboration,citizenengagementandleveraging regionalresourcesputtheruralregionsonthepathtowardsimprovedsocialand economicoutcomes. TenmonthsofexperimentationthroughtheCommunityClusteringInitiativewasnt sufficienttimetowitnessandevaluatelongtermresults.Butinthatshorttimeframe,it madeadifferencethatclusterconversationsinvolvedmultiplesectors(government, business,civic),crossedpoliticalboundaries(evenifonlywithinasinglecounty),and engagednewvoices(ruralyouth,NativeAmericans).Itmadeadifferencethatdecision makingwasinformedbyexperiencedregionalintermediariesand,forthemostpart, basedonassetsratherthanproblems. Itwouldhavemadeevenmoreofadifferencehadtheclustersbeenabletoanalyzeand understandtheirregionaleconomy,leadabottomupvisioningprocess,andestablish trustingrelationshipsamongdiversepeople.Judgingfromtheresultsachievedover10 months,theseadditionalelementsofcollaboration,citizenengagementandleveraging regionalresourceswouldhavepushedtheregionsevenfurther. Ifthereisapositiverelationshipbetweeneffectiveruralgovernanceandimproved socialandeconomicoutcomes,thefirstlessonlearnedthroughontheground experimentationisallthemoreimportant:unlesspolicymakersandfundersencourageand rewardadifferentgovernancescenario,ruralregionswillsticktotheirestablisheddecision makingpractices.Butforinducementstostepoutoftheroutine,neighboring communitieswillcontinuetocompeteforscarceresources,establishedleaderswilltalk 63

anddecideamongthemselves,youthwillbediscussedbutnotengaged,andsoon.This isthewrongpathforstrugglingruralregions.RUPRIhopesthatthestories,resources andlessonsgeneratedthroughtheRuralGovernanceInitiativewillspurpolicymakers andfunderstosupportadifferentapproach. Endnotes

1Lacy,Donald(September2001)AnOverviewofRuralGovernanceIssues.Presentationpreparedforthe51st NationalPublicPolicyEducationConference,SanAntonio,TX.Theconferencewascanceleddueto restrictedairtravelfollowingthe9/11attacks.PresentationsarepostedontheFarmFoundationWebsite (www.farmfoundation.org). 2Huillet,Christian.(2004)ForewordinLovan,MurrayandShaffer(Eds.),ParticipatoryGovernance: Planning,ConflictMediationandPublicDecisionMakinginCivilSociety.Hanys,England:Asgate. 3Gardner,Sid(April2004)LiteratureReview:TheRoleofLocalGovernmentinCommunityBuilding.Draft paperwrittentoinformtheAspenInstitutesRoundtableonCommunityChangesexplorationoflocal governmentinvolvementincommunitybuilding. 4Lovan,MurrayandShaffer(2004). 5Fluharty,CharlesW.(May2004)AssessingtheStateofRuralGovernanceintheUnitedStates.InTheCenter fortheStudyofRuralAmerica,NewGovernanceforaNewRuralEconomy:ReinventingPublicandPrivate Institutions.KansasCity,MO:FederalReserveBankofKansasCity. 6Light,PaulC.(1999)TheNewPublicService.Washington,DC:BrookingsInstitutionPress. 7Governors(WV)CommissiononGoverninginthe21stCentury.(2004)ReporttoGovernorBobWise. 8McClung,Tim.UniversityofCharleston,EntrepreneurshipCenter.Personalcommunication,March9, 2005. 9Gierisch,Bobby.(2004)TheMinnesotaModelforRuralDevelopment.UnpublishedRUPRIpaper. 10Acollaborativeincludesseveraldifferenttypesoforganizations(includingprivate,governmental, communitybased,tribal,nonprofit,educational,others)thatworktogethertoprovideafullrangeof entrepreneurshipdevelopmentservicestoadiversecustomerbasewithinadefinedregion. 11Deller,Steven.(November2004)GovernanceAcrosstheWorld.CommunityEconomics.Universityof WisconsinExtension.

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Simmons,LeAnn.(July2004)WhatisCollaboration?CommunityMatters.NorthwestCommunity DevelopmentInstitute. 13ChandlerCenterforCommunityLeadership,OregonStateUniversityExtensionandCentralOregon CommunityCollege.CommunityBasedCollaboration:CommunityWellnessMultiplied. Http://crs.uvm.edu/nnco/collab/wellness.html. 14Stark,Nancy.(1997)HarvestingHometownJobs:thenewsmalltownguidetoeconomicdevelopment.National CenterforSmallCommunities.Page137. 15ThisistheRuralGovernmentInitiativesworkingdefinitionofcommunitybuilders. 16RoundtableonCommunityChange.(March2004)LocalGovernmentandCommunityBuildingProject Overview.UnpublishedpaperdrawnfromJanuary2004meetingofaRoundtablesubcommittee.Page4. 17RoundtableonCommunityChangeWebsite:www.aspeninstitute.org. 18RoundtableonCommunityChange.ProjectOverview.Page2. 19Warner,Mildred.(2003)Competition,Cooperation,andLocalGovernance.InChallengesforRural AmericaintheTwentyFirstCentury.UniversityPark,PA:PennsylvaniaStateUniversityPress.Page257. 20Johnson,Kirk.(July23,2004)HowDroughtJustMightBringWatertotheNavajo.TheNewYorkTimes. PageA16.StatementbyMarkEdwards,consultanttoGallup,NM. 21Fluharty,CharlesW.(May2004)Op.cit. 22Waugh,Terry.Personalcommunication,July20,2004. 23Rowley,Tom.(August13,2004)EntrepreneurshipMeansAdaptation.WeeklyCommentary.Statementby MelanieSabelhaus,SmallBusinessAdministration.WeeklyCommentaryisintendedtohelpfurtherthe RuralPolicyandResearchInstitutesmissiontofacilitatepublicdialogueconcerningtheimpactsof publicpolicyonruralpeopleandplaces.Theopinionsexpressedaresolelythoseoftheauthoranddonot necessarilyreflecttheviewsorpolicyanalysesofRUPRI,itscollaboratingorganizationsandinstitutions, oritsfunders. 24Ibid.StatementbyErikPages,EntreWorksConsulting. 25FederalReserveBankofKansasCity.(Winter2001)CommunityReinvestment.StatementbyCarol Meyer,LeadershipGardenCityprogramcoordinator.Page10. 26Flora,CorneliaButlerandFlora,Jan(2003)SocialCapital.InChallengesforRuralAmericaintheTwenty FirstCentury.Page225. 27Yost,Jeffrey(March2005)HomeTownCompetitivenessUpdate.NebraskaCommunityFoundationNews.
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Gambone,James.IntergenerationalDialogueandActionProcess.Personalcommunication,July27, 2006.Website:www.pointsofviewinc.com. 29Waugh,Terry.(2004)Op.cit. 30StatementmadeatW.K.KelloggFoundationsRuralConference,Arlington,VA.October29,2003. 31Stark,Nancy.(June2002)TechnologyandGritattheGrassroots:informationtechnology,community engagement,andjobsindistressedruralcommunities.NationalCenterforSmallCommunities.Page38. 32TheDukeEndowment(September2001)TheRuralProgram:ANewEffortbyTheDukeEndowmenttoHelp StrengthenRuralCommunitiesinNorthCarolinaandSouthCarolina.Page4. 33Stark,Nancy.(1997)Op.cit.Page13. 34DuBois,Felice.RuralDevelopmentInitiatives.Personalcommunication,June10,2004. 35Forthepurposesofthispaper,wearegroupingtogetherallvisioningapproaches.However,we recognizethatthereareavarietyofvisioningtechniques. 36Stark,Nancy.(1997)Op.cit.Page15.AdaptedfromCommunityVisioning/StrategicPlanningPrograms: StateoftheArt,NorthCentralRegionalCenterforRuralDevelopment,1996. 37Kretzmann,JohnandMcKnight,John.(1993).BuildingCommunitiesFromtheInsideOut:Apathtoward findingandmobilizingacommunitysassets.Evanston,IL:InstituteforPolicyResearch. 38 Barker, Joel. (1989) Discovering the Future: the business of paradigms.
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Stark,Nancy.(1997)Op.cit.Page22.

Ratner,Shanna.YellowWoodAssociates.Personalcommunication,February28,2005.Website: www.YellowWood.org. 41Porter,MichaelE.(February2004)CompetitivenessinRuralU.S.Regions:LearningandResearchAgenda. HarvardBusinessSchool,InstituteforStrategyandCompetitiveness.Page63. 42Johnson,Stanley.(September2001)ConferenceSynthesis.InTheCenterfortheStudyofRuralAmerica, ExploringPolicyOptionsforaNewRuralAmerica.KansasCity,MO:FederalReserveBankofKansasCity. 43 Porter, Michael E. Op.cit. Page 62.
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PlanningDecisions,Inc.(September30,2003)AroostookCountyEconomicClusterReport.Page2. AroostookCountyEmpowermentZoneWebsite:www.aroostookez.org. 45Porter,MichaelE.Op.cit. 46Fluharty,CharlesW.(May2004)Op.cit.

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 ExcerptedfromInnovationsinRuralGovernance,2003AnnualReport,CenterfortheStudyofRural America,FederalReserveBankofKansasCity,January2004.UpdatedinformationprovidedbyJoe Sertich,NortheastMinnesotaHigherEducationDistrict.

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Sager,Mikki.ConservationFund,NorthCarolinaOffice.Personalcommunication,April8,2005. HandMadeinAmericaWebsite:www.handmadeinamerica.org.

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NationalAssociationofCounties(NACO),NationalAssociationofTownsandTownships (NATaT)/NationalCenterforSmallCommunities(NCSC),andNationalLeagueofCities(NLC),which hasaSmallCitiesCouncil. 51Douglas,Nam.NorthCarolinaRuralEconomicDevelopmentCenter.Personalcommunication,January 18,2005. 52Ibid. 53NCRuralCenterWebsite:www.ncruralcenter.org. 54Briggs,XavierdeSouza(May2003)Op.cit. 55Flora,CorneliaButlerandFlora,Jan.(2003).Op.cit.FloraandFloradrawfromthecivicengagement workofHarvardUniversitysRobertPutnamwhodefinessocialcapitalasthecollectivevalueofall socialnetworks[whopeopleknow]andtheinclinationsthatarisefromthesenetworkstodothingsfor eachother[normsofreciprocity].Formoreinformation,visittheSaguaroSeminarWebsite: www.ksg.harvard.edu/saguaro. 56Ibid. 57Ibid. 58USDAEconomicResearchService,RuralAmerica,Vol.16,Issue2,September2001. 59RUPRI,MDCInc.andTexasTechUniversity(2004).InvigoratingRuralEconomies:TheRuralDevelopment MissionofMississippisCommunityColleges,ExecutiveSummary.Yettobepublishedpaper.Page4. 60Topolsky,Janet.AspenInstitute,CommunityStrategiesGroup.Personalcommunication,April19, 2005. 61RuralDevelopmentPhilanthropyWebsite:www.aspencsg.org/rdp. 62Jaworski,Kathi.RuralDevelopmentInitiatives.PersonalCommunication,July28,2006.Website: www.rdiinc.org. 63Yost,Jeffrey.NebraskaCommunityFoundation.Personalcommunication,July28,2006.Website: www.nebcommfound.org.
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